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THE 


INAUGURAL  ADDRESS 

OF 

FREDERICK  0.  PRINCE, 

MAYOR  OF  BOSTON, 


THE  CITY  COUNCIL, 


JANUAEY  1,  1877. 


BOSTON: 

ROCKWELL  AND  CHURCHILL,  CITY  PRINTERS, 
39  ARCH  STREET. 

1 8 77. 


336. 
P'=i3S  C 
\3ni 


CITY  OF  BOSTON. 


In  Common  Council,  January  1,  1877. 
Ordered,  That  his  Honor  the  Mayor  be  requested  to  fur- 
nish a copy  of  his  address,  that  the  same  may  be  printed. 
Sent  up  for  concurrence. 

BENJAMIN  POPE,  President, 


In  Boaed  of  Aldekmen,  January  8,  1877. 

Concurred. 


JOHN  T.  CLARK,  Chairman. 


ADDRESS. 


Gentlemen  of  the  City  Council:  — We  meet 
to  assume  high  and  responsible  trusts,  — the  manage- 
ment for  the  ensuing  year  of  the  municipal  affairs  of 
a great  city,  — a city  possessed  of  nearly  seven  hun- 
dred and  fifty  millions  of  taxable  property,  and  a 
population  approaching  four  hundred  thousand,  — a 
city  proud  of  her  history,  jealous  of  her  rights,  and 
ever  watchful  of  whatever  affects  her  interests  and 
her  honor. 

We  meet  under  peculiar  circumstances.  One  of 
the  most  important  national  elections,  — perhaps, 
when  all  its  results  shall  be  disclosed,  the  most 
important  election  recorded  in  our  annals,  — has 
just  been  held,  after  a contest  waged  with  unex- 
ampled excitement  and  acrimony. 

The  issue  is  yet  undecided,  and  the  country  is 
deeply  stirred  by  the  rival  claims  of  two  great 
parties  for  the  right  to  administer  the  Government. 

The  recent  municipal  election  reflected  to  some 
extent  the  passions  of  the  Federal  election ; but 
party  strife  and  party  animosities  have  no  recogni- 


6 


MAYOR’S  ADDRESS. 


tion  in  this  presence.  We  should  exercise  the 
powers  delegated  to  us  for  the  welfare  and  pros- 
perity of  all  the  citizens,  without  regard  to  party 
differences  or  party  interests.  Under  that  inspira- 
tion of  peace  and  good-will  to  all  which  conies  from 
the  Christmas  season,  let  us  endeavor  to  do  so. 

CITY  DEBT. 

Permit  me  first  to  direct  your  attention  to  om* 
financial  condition:  — 

The  gross  debtof  the  city  on  31st  Dec.,  1876,  was  $45,058,151  58 
The  sinking  fund  and  other  available  means 

amounted  to 16,681,789  34 

Showing  the  net  debt  to  be $28,376,362  24 

The  cost  of  the  water  works  at  that  date  was  . 15,342,603  33 

Thus  making  the  net  city  debt,  exclusive  of  cost  of 

water  works $13,033,758  91 

We  are  assured  that  the  difference  between  the 
interest  on  the  net  debt  and  the  gross  debt,  which 
the  law  requires  us  to  add  to  the  sinldng  fund,  would 
extinguish  the  entire  debt  (exclusive  of  the  water 
debt)  in  about  seven  years;  so  that,  if  we  avoid  new 
obligations,  our  city  will  be  substantially  free  of 
debt,  as  the  income  from  water  rates  pays  the  inter- 
est of  water  loans. 


MAYOR’S  ADDRESS. 


7 


My  knowledge  of  facts,  and  capacity  to  cipher,  do 
not  permit  me  to  endorse  fully  this  pleasing  statement ; 
but  if  it  be  true  that  we  are  so  near  the  happy  time 
when  the  city  debt  shall  be  no  more,  and  the  tax- 
payer and  the  tax-gatherer  shall  lie  down  together  in 
amity,  our  citizens  will,  indeed,  see  a silver  lining  in 
the  financial  cloud,  and,  cheered  by  this  prospect  of 
coming  relief,  endure  bravely  these  seven  years  of 
heavy  taxation. 

CITY  EXPENSES. 

There  is  great  complaint  throughout  the  country 
of  extravagance  in  the  administration  of  public 
affairs  — extravagance  not  only  in  the  national,  but 
in  the  State  and  municipal  governments.  The  peo- 
ple feel  that  they  are  paying  too  much  for  govern- 
ment. They  think  that  republican  institutions  do 
not  exempt  them  from  one  of  the  most  intolerable 
oppressions  of  monarchy,  — grinding  taxation.  Upon 
the  issue  of  reform,  both  the  great  parties  contended 
in  the  recent  Federal  election,  and  a vast  popular 
majority  has  demanded  retrenchment. 

For  a long  time  a growing  conviction  has  been 
held  among  our  citizens  that  our  municipal  expenses 
are  greater  than  they  should  be,  — that  we  are  spend- 
ing too  much.  They  find  that  the  expenditures  of 
the  city,  exclusive  of  temporary  loans  and  city  debt 


8 


MAYOR’S  ADDRESS. 


reclaimed,  has  increased  from  about  two  and  a half 
millions  in  1855  to  over  fifteen  millions  in  1875. 

This  steady  increase  of  expense  aivakens ' the 
suspicion,  if  it  does  not  justify  the  belief,  that 
things  are  not  as  they  should  be. 

My  immediate  predecessor  in  office  asserts,  in  his 
last  inaugural  address,  that  the  annual  expenditure 
of  the  City  Government  at  the  present  time  exceeds 
the  entire  expenditures  of  the  United  States  Gov- 
ernment at  the  time  the  first  city  charter  was  granted. 
If  this  be  so,  is  it  not  time  to  cry,  ” Stop  ” ? 

The  recent  municipal  election  turned  substantially 
on  the  issue  of  urban  reform.  In  accepting  office  we 
pledged  ourselves  to  do  all  in  our  power  to  correct 
whatever  requires  correction. 

To  test  the  accuracy  of  the  popular  belief  that  our 
expenses  are  too  great,  we  should  examine  the  costs 
of  each  department  of  the  service.  This  duty  will 
be  most  laborious;  but  it  is  a duty  imposed  by  our 
trust  and  our  pledge,  and  its  importance  will  not 
permit  its  neglect. 

I am  not  for  a niggard  economy,  — an  economy 
which  is  mean  and  unworthy  a community  refined, 
educated,  liberal  and  cosmopolitan,  such  as  we  claim 
and  boast  to  be.  I know  the  wants j spirit  and  policy 
of  my  native  city.  The  pride  and  patriotism  of  her 
sons  will  supply  whatever  her  safety  and  well-being 


M A Y OK’S  A D DRESS. 


9 


require;  whatever  the  defence  of  her  commercial, 
manufacturing,  educational,  sanitary  and  other  great 
and  vital  interests  may  call  for;  whatever  her  honor 
demands.  But  they  reprobate  and  oppose  at  all 
times,  and  especially  at  this  time,  when  capital  is  un- 
productive, and  labor  unemployed, — when  the  cost  of 
all  necessaries  is  so  largely  disproportioned  to  wages, 
with  no  just  expectation  of  an  improved  condition  in 
the  immediate  future,  — all  unnecessary  municipal 
waste  and  extravagance. 

We  have  been  accustomed  at  the  beginning  of  each 
year,  when  assembled  for  the  purpose  for  which  we 
now  assemble,  to  set  forth  in  rhetorical  periods  the 
necessity  of  retrenchment,  and  the  determination  to 
economize.  But  these  first  of  January  municipal 
resolutions  of  reform  are  too  like  the  promises  of 
individuals  at  such  times,  and  as  often  evaporate 
in  words;  for  nothing  comes  of  them. 

Let  us  not  disappoint  the  just  expectations  of  those 
for  whom  we  act.  If  it  shall  be  found  that  we  are 
spending  too  much,  let  us  ascertain  where  savings 
may  be  made.  As  all  large  sums  are  but  the  aggre- 
gate of  many  small  ones,  let  us  inquire  if  there  have 
not  grown  up  habits  of  expense  which  may  be 
corrected.  Can  we  not,  without  prejudice  to  the 
public  interests,  employ  fewer  assistants  in  the  de- 
partments? Can  we  not,  without  injustice  to  the 


2 


10 


MAYOR’S  ADDRESS. 


employes,  or  injury  to  the  service,  reduce  salaries? 
Can  we  not  show  that  we  buy  what  we  do  not  need; 
that  in  the  erection  of  our  various  public  buildings 
we  spend  on  useless  ornamentation,  and  otherwise, 
more  than  is  necessary;  that  in  our  public  works, 
in  our  street  widenings,  and  other  improvements,  we 
are  extravagant?  Do  we  not  pay  too  much  for 
materials,  and  for  work? 

My  predecessor  told  us  in  his  valedictory  that  we 
should  reduce  next  year  our  tax  valuation  $50,000,000, 

''  but  that  our  city  expenditures  can  be  so  reduced  as 
to  keep  the  Tate  of  taxation  about  where  it  is.”  We 
thus  have  the  highest  authority  for  the  belief  that  an 
immense  reduction  in  our  expenses  can  and  should  be  ' 
made  at  once. 

The  secret  of  success  in  the  management  of  public 
affairs  is  the  same  as  in  private  affairs.  The  princi- 
ples underlying  both  are  the  same.  Don’t  buy 
WHAT  Y^OU  don’t  WANT,  AND  AVOID . DEBT.  Here 
lie  all  the  law  and  the  gospel  of  finance.  The  great 
reformer  (Mr.  Til  den)  well  puts  the  case  in  his 
letter  to  the  Secretary  of  the  Treasury,  in  1865. 
He  says : ''  There  is  no  royal  road  for  a government 
than  for  an  individual  or  corporation.  Cut  down 
your  expenses  ; live  within  your  income.  I would 
give  all  the  legerdemain  of  finance  and  financiering 


MAYOR’S  ADDRESS. 


11 


— I would  the  whole  of  it  — for  the  old,  homely 
maxim,  — ' Live  within  your  income.’  ” 

Let  me,  without  seeming  to  make  light  of  a grave 
subject,  cite  another  authority  to  the  same  point,  that 
of  one  who  was  taught  by  the  sternest  of  teachers  — 
experience  — the  lessons  of  economy.  The  inimitable 
Mr.  Micawber  gives  us,  in  his  peculiar  way,  the  whole 
philosophy  of  finance  when  he  says,  ''  Annual  in- 
come, twenty  pounds;  annual  expenditure,  nineteen 
pounds,  nineteen,  six  — result,  happiness.  Annual 
income,  twenty  pounds;  annual  expenditure,  twenty 
pounds,  ought,  and  six  — result,  misery.” 

If  we  could  reduce  our  expenses,  and  thus  lighten 
taxation,  we  should  bring  back  to  us  those  citizens 
who  now  pay  taxes  elsewhere,  and  attract  within  our 
limits  many  whose  producing  industry  would  greatly 
augment  our  municipal  wealth. 


WEDEN^mG  STREETS. 

The  cost  of  widening  and  extending  streets  has 
always  been  a large  item  of  municipal  expenditure. 
The  streets  of  Boston  were  originally  laid  out  so 
narrow  and  irregular,  that,  as  the  population  and 
business  increased,  improvements  were  constantly 
required.  The  lands  taken  for  this  purpose  were 
generally  those  in  the  business  parts  of  the  city,  and 


12 


A Y O R ’ S ADDRESS. 


therefore  the  most  valuable.  The  annual  cost  of 
these  improvements  has  consecpiently  been  very 
large. 

Since  the  great  fire  very  extensive  changes  in  the 
lines  of  the  streets  of  the  burnt  district  have  been 
called  for,  and  made  — at  the  expenditure  of  over 
six  millions  of  dollars. 

These  improvements,  required,  without  doubt,  by 
the  pressing  wants  of  business,  and  the  convenience 
of  the  public,  have  received  the  approval  of  our 
citizens ; but  they  have  caused  a heavy  taxation. 
Further  street  widenings  are  suggested,  which  would 
require  heavy  appropriations ; but  I advise  the  post- 
ponement of  any  expensive  undeilakings  in  this 
direction,  and  of  all  such  not  absolutely  needed,  until 
we  can  better  afford  it. 

We  are  near  the  limit  imposed  by  law  on  munici- 
pal indebtedness,  and  the  necessity  of  spending  large 
sums  demanded  for  sewers  and  other  necessary 
objects  will  tax  heavily  the  resources  of  our  citizens. 

WATER. 

The  work  of  bringing  water  from  Sudbury  river 
has  been  j^rosecuted  with  vigor  during  the  last  year. 
It  is  believed  that  the  whole  cost  of  it  will  be  about 
$4,050,000.  This  sum  includes  estimated  damages 
to  land,  and  all  charges  for  additional  supply,  except 


MAYOR’S  ADDRESS. 


13 


interest  paid  during  construction,  and  water  damages. 
It-  is  believed  that  it  will  be  completed  in  about  a 
year. 

The  whole  cost  of  all  the  water  works  will  probably 
not  exceed  $18,000,000. 

With  the  completion  of  the  Sudbury-river  works 
the  city  will  have,  from  all  sources,  a supply  of  water 
sufficient  for  the  wants  of  1,000,000  inhabitants. 

The  balance  of  cost  of  the  water  works  to  Dec.  31, 
1876,  was  $14,093,603.33. 

The  total  number  of  water-takers  to  that  date 
was  66,229. 


The  total  receipts  of  water  rates, 
1876,  to  Dec.  31,  1876,  were  . 
Paid  daring  the  3'ear  1876  : — 

Interest  .... 
Current  expenses  . 

Water  for  East  Boston  . 
Paj’ments  to  Chelsea,  Somer- 
A’ille  and  Everett  on  Mystic 
contract  .... 

Leaving  net  receipts  . 


from  Jan.  1, 

. . . $1,378,757  64 

8870,524  81 
252,569  06 
47,852  59 


22,080  02 

1,193,026  48 

$185,731  16 


From  this  balance  should  be  deducted  interest  for 
one  year  on  the  Mystic  Water  debt,  about  $70,000. 

The  entire  management  of  the  Water  Department 
has  been  committed  to  a Water  Board  by  act  of  the 


14 


MAYOR’S  ADDRESS. 


Legislature,  passed  1875;  audit  is  believed  that  the 
public  benefit  has  been  greatly  advanced  by  the 
change. 

SEWERAGE. 

No  subject  at  this  time  claims  so  large  a share  of 
your  serious  consideration  as  that  of  sewerage.  The 
health,  prosperity,  every  interest,  in  fact,  of  our  people 
depend  upon  it. 

Do  you  expect  Boston  to  maintain  its  present  posi- 
tion among  the  other  cities  of  the  country?  — do  you 
wish  her  to  increase  in  wealth,  in  commercial  impor- 
tance, in  political  infiuence,  to  be  what  we  claim  she 
is,  — the  model  metropolis?  See  to  it  then  that  she 
shall  have  'pure,,  as  well  as  free  air,  for  the  lungs  of 
her  people. 

The  importance  of  perfect  sewerage,  good  drain- 
age, cleanliness  and  ventilation  cannot  be  overstated. 
Boston  is  now  one  of  the  most  unhealthy  of  the 
large  cities.  I appeal  for  the  truth  of  this  statement 
to  the  eloquence  of  facts.  The  statistics,  according 
to  accurate  medical  authority,  show  the  Boston  annual 
death-rate  to  be  26.18  in  a thousand,  while  that  of 
London  is  but  23.7,  and  that  of  Philadelphia  only  19.3. 
We  are  fast  approaching  our  two  unheal thiest  cities, 
New  York  and  New  Orleans. 

Two  causes,  according  to  the  medical  experts,  have 


MAYOR’S  ADDRESS. 


15 


produced  this  result.  One  is  the  want  of  a proper 
system  of  sewerage,  the  other  proper  open  spaces  or 
parks  for  the  storage  and  distribution  of  oxygen,  — ‘v 
prime  necessity  of  life  everywhere  throughout  ou 
crowded  city. 

The  instructive  letter  of  our  fellow-citizen,  the 
eminent  Dr.  Edward  H.  Clarke,  upon  this  subject, 
addressed  to  the  meeting  of  citizens  held  at  Faneuil 
Hall,  in  June  last,  assures  us  ” that  defective  sewer- 
age and  imperfect  drainage  are  sapping  the  health 
of  the  city.”  All  the  authorities  agree  with  him  as 
to  the  baleful  effects  of  these  two  causes  of  disease. 

In  1875  a very  able  scientific  commission,  consist- 
ing of  two  engineei’s  and  one  physician,  was  ap- 
pointed by  the  City  Council  to  examine  the  whole 
subject  of  sewerage  and  drainage,  and  their  report 
(City  Doc.  JSTo.  3)  shows  that  the  work  has  been  well 
done.  Their  investigations  have  been  made  with 
great  care,  and  their  high  professional  reputation 
gives  convincing  weight  to  their  conclusions. 

In  July  last  an  appropriation  of  forty  thousand 
dollars  was  made  to  obtain  accurate  surveys,  and 
procure  true  estimates  of  the  cost  of  constructing 
works  substantially  upon  the  plan  recommended  by 
the  commissioners.  If  this  plan  should  be  adopted 
it  would  without  doubt  give  us  a perfect  system  of 
sewerage  for  an  indefinite  time,  however  large  our 


1(5 


M A Y 0 K ’ S ADDRESS. 


po})iilation  may  be.  The  cost  of  the  works,  or  of 
any  works  which. would  secure  the  desired  result, 
would  be  great;  but  I am  sure  that  any  additional 
taxation  which  they  might  require  would  be  cheer- 
fully submitted  to  by  our  tax-payers,  because  ade- 
quate sewerage  is  a necessity;  and  whatever  neces- 
sity demands  it  vindicates. 


PARKS. 

Another  subject  of  great  importance,  in  respect  to 
the  health  and  welfare  of  our  citizens,  is  that  of 
Parl's.  It  demands,  and  should  receive,  your  care- 
ful consideration. 

This  matter  has  been  before  the  people,  in  different 
ways,  for  a long  time. 

The  first  action  directed  to  the  establishment  of 
a public  park  was  taken  in  1869,  upon  the  petition 
of  large  numbers  of  our  leading  men  and  wealthy 
tax-payers.  A committee  of  the  City  Council  was 
appointed  to  hear  the  parties;  and,  after  doing  so, 
reported  an  order,  directing  the  Mayor  to  petition 
the  Legislature  for  leave  to  purchase  lands  for  one 
large,  or  several  small  parks. 

The  order  was  passed,  and  an  act  in  accordance 
therewith  obtained  from  the  Legislature.  It  con- 
tained a clause  requiring  a two-thirds  vote  of  the 


MAYOR’S  ADDRESS. 


17 


people  for  its  acceptance.  It  failed  to  become  a law, 
for  reasons  haying  no  relation  to  the  merits  of  the 
question,  two-thirds  of  the  voters  not  voting  for  it. 

In  jS’ovember,  1873,  an  order  was  passed,  calling 
for  a Joint  Special  Committee  to  consider  and  report 
upon  the  subject  of  establishing  one  or  more  parks; 
but  the  lateness  of  the  year  did  not  permit  any 
action  to  be  taken. 

In  the  early  part  of  1874  a commission,  consisting 
of  the  Mayor,  two  Aldermen,  three  Councilmen  and 
three  laymen,  were  appointed  to  consider  the  sub- 
ject. This  commission  had  several  large  public 
hearings  upon  the  matter.  All  classes  were  there 
represented,  and  very  great  interest  was  manifested. 
]^7o  one  opposed  the  project. 

The  committee  reported  on  the  25th  of  November, 
and  the  report  was  submitted  to  the  Council,  by  the 
Mayor,  on  the  3d  of  December.  It  forms  City 
Document  No.  105.  The  report  recommends : — 

First.  That  a park  be  laid  out  in  some  part  of 
the  territory  between  Arlington  street  and  Parker’s 
hill. 

Second.  That  a series  of  parks  of  moderate  size, 
connected  by  roads,  be  laid  out  between  the  third 
and  fourth  mile  circles. 

The  lateness  of  the  year  again  prevented  action  by 
the  City  Government  of  1874. 


.s 


18 


MAYOR’S  ADDRESS. 


In  1875  the  matter  was  revived,  and  the  order 
adopted. 

The  act  asked  for  was  obtained  from  the  Legisla- 
ture, and  on  the  9th  of  June  was  accepted  hj  the 
people.  Under  this  act  three  very  competent  and 
pnblic-spirited  commissioners  were  appointed  and 
empowered  to  locate,  under  certain  conditions  and 
limitations,  one  or  more  parks  within  the  limits  of 
the  city. 

Their  report  (City  Doc.  'No.  4)  is  a most  interest- 
ing paper,  and  shows  a painstaking,  intelligent  and 
exhaustive  examination  of  the  whole  subject.  It 
recommends  the  adoption  of  a series  of  parks,  located 
in  different  sections  of  the  city,  connected  by  park- 
i-oads,  thus  giving  park  accommodations  to  all  our 
citizens. 

The  plan  of  the  commissioners,  with  their  views 
in  relation  to  it,  has  been  subjected  to  careful 
scrutiny  and  criticism,  and  is  generally  approved. 
At  a meeting  held  at  Fanenil  Hall,  pursuant  to  a 
call  signed  l)y  a large  number  of  prominent  citizens, 
to  take  action  on  it,  addresses  were  made  by  the 
leading  men  in  the  different  professions,  and  by  the 
representatives  of  every  class.  Resolutions  were 
then  unanimously  passed,  endorsing  the  recommenda- 
tions of  the  commissioners,  and  asking  for  immediate 
and  favorable  action  by  the  City  Council. 


M A Y O R \S  ADDRESS. 


19 


I may  add  that  my  immediate  official  predecessor, 
in  his  Inaugural  Addresses  of  1874  and  1875,  has 
endoi’sed  the  recommendations  of  the  Park  Com- 
missioners, and  m*ged  their  adoption  by  the  City 
Government  with  much  force. 

I have  deemed  it  my  duty  to  briefly  recall  to  your 
attention  the  history  of  the  movement  in  behalf  of  a 
system  of  parks,  not  only  because  of  the  importance 
of  the  subject,  but  in  justice  to  the  commissioners, 
who,  without  compensation,  have  given  to  it  so  much 
patient  labor  and  valuable  time. 

It  is  beyond  question,  that  our  citizens  confidently 
believe  that  the  establishment  of  one  or  more  parks 
within  the  municipal  limits  would  increase  the  com- 
fort, advance  the  prosperity,  and  improve  the  healtli 
of  the  people.  They  also  believe  that  these  parks 
should  be  located  substantially  as  recommended 
by  the  commissioners,  so  as  to  be  easily  accessible 
to  the  masses,  and  not  merely  to  those  who, 
owning  carriages,  do  not  regard  distance  as 
objectionable. 

There  is  great  unanimity  in  respect  to  the  general 
scheme  of  the  report.  Differences  of  opinion,  how- 
ever, without  doubt,  exist  as  to  some  of  the  sugges- 
tions of  the  commissioners;  and  it  is  thought  by 
many  that  considerable  modifications  and  changes 
might  be  made,  which,  without  essentially  disturbing 


20 


MAYOR’S  ADDRESS. 


the  value  of  the  plan,  might  largely  reduce  the  cost, 
and  thus  make  its  adoption  more  practicable. 

The  only  question  upon  which  there  is  substantial 
disagreement  is  that  relating  to  the  time  when  the 
work  should  be  commenced. 

It  is  claimed,  with  much  apparent  force,  by  many, 
that  all  action  in  the  premises  should  be  postponed 
until  our  debt  should  be  lessened;  until  business 
revives,  and  our  mechanics,  manufacturers  and  mer- 
chants shall  once  more  gather  in  the  fruits  of  industry 
and  enterprise. 

On  the  other  hand,  it  is  urged  that  the  time  for 
beginning  is  now,  because  of  the  present  unprece- 
dented cheapness  of  land,  resulting  from  the  general 
prostration  of  all  business;  the  great  supply  and 
cheapness  of  labor;  the  cheapness  of  money;  and 
especially  for  sanitary  reasons,  as  the  health  and 
safety  of  the  city  require  certain  portions  of  the 
territory  embraced  in  the  plan  to  be  improved  at 
once. 

It  is  also  urged,  by  the  advocates  for  immediate 
action  in  this  matter,  that  if  the  work  is  postponed 
we  cannot  have  the  parks;  that  with  the  growth  of 
population  buildings  will  cover  the  land;  speculators 
will  buy  it,  and  the  cost  will  be  so  immensely  aug- 
mented that  the  attempt  to  carry  out  the  plan  of  the 
commissioners,  with  extensive  modifications  even. 


MAYOR’S  ADDRESS. 


21 


must  be  abandoned.  Furthermore,  it  is  claimed  that 
the  money  expended  in  the  purchase  of  land  for  park 
purposes  would  be  well  invested  and  quickly  re- 
turned by  betterments,  and  by  increase  in  taxable 
value  of  surrounding  property.  In  support  of  this 
assertion  reference  is  made  to  all  the  other ‘American 
cities,  without  exception,  where  such  results  have 
been  obtained. 

You  will  be  called  to  consider  the  whole  subject, 
as  it  has  been  referred  to  your  action  by  the  last  city 
government.  I doubt  not  you  will  do  in  the  premises 
whatever  the  best  interests  of  the  city  require;  that 
you  will  pause  and  consider  seriously  whether  the 
extent  of  our  debt,  the  cost  to  be  incurred  for 
sewerage  and  other  matters  of  prime  necessity,  to- 
gether with  the  consequent  increase  of  taxation,  will 
justify  a great  park  outlay,  unless  satisfied  that  the 
financial  effect  of  parks  will  be  the  same  here  as  it 
has  been  in  other  cities. 

W e should  not  overlook  in  our  action  in  this  mat- 
ter that  some  portion  of  the  park  scheme  is  without 
doubt  connected  with  the  sewerage  question. 

If  it  be  true,  as  the  medical  authorities  say,  that 
" portions  of  the  park  laid  out  by  the  commissioners 
will  utilize  localities  that  would  otherwise  become 
plague-spots  and  nurseries  of  disease;  that  the  low 
lands  along  the  banks  of  the  Charles  river,  portions 


90 


MAYOR’S  ADDRESS. 


of  the  Back  bay,  that  natural  cesspool,  and  other 
sections,  are  snre  to  become  unhealthy  localities, 
stations  for  distributing  the  germs  of  disease 
throughout  their  neighborhood,  and  at  a distance 
from  them  unless  they  are  reserved  and  left  unoccu- 
pied,” there  should  be  no  hesitation  in  the  matter. 
These  facts  demonstrated,  our  action  should  be 
immediate,  for,  as  I have  said,  we  should  accomplish 
at  any  cost  what  the  health  and  safety  of  our  citizens 
demand. 


CITY  CHARTER. 

The  matter  of  the  city  charter  was  referred  to  the 
present  City  Government  by  that  of  the  previous 
year.  It  is  well  known  that  an  able  Board  of  Com- 
missioners was  appointed  in  1873  to  revise  the  city 
charter.  Their  report  was  made  in  1875.  It  sug- 
gested changes  so  sweeping  and  so  radical  as  to 
alarm  the  thinking  and  conservative  part  of  our 
citizens. 

One  of  the  chief  features  of  the  proposed  charter 
is  the  separation  of  the  executive  and  legislative 
functions;  the  former  to  be  represented  as  in  the 
State  and  Federal  Governments  by  a chief  and  a 
staff  of  officers  or  heads  of  departments;  the  latter 
to  be  exercised  by  representatives  elected  by  the 
people. 


MAYOR  S ADDRESS. 


23 


It  was  apparent  that  the  t^i’oposed  charter  virtually 
put  the  governmeut  of  the  city  into  commission,  and 
made  rather  a governmeut  for  the  people  than  by  the 
people. 

The  government  created  bv  these  fundamental 
changes  would  be  contrary  to  the  customs,  habits, 
traditions,  policy,  and  genius  of  onr  population. 
Xew  England  people  have  ever  been  jealous  of  all 
attempts  to  take  from  them  the  management  of  their 
own  affairs,  and  no  portion  of  them  more  so  than  the 
citizens  of  Boston.' 

If  onr  population  was  as  large  as  that  of  the  great 
cities  of  Europe,  and  as  accustomed  to  have  rulers 
think  for  them;  if  they  were  ignorant  and  unedu- 
cated; if  they  were  indifferent  to  the  success  of  onr 
institutions,  — the  proposed  changes  in  our  city 
charter  might  be  necessary  to  secure  good  govern- 
ment. But  it  is  otherwise. 

Our  city,  although  respectable  in  size,  and  large 
enough  to  acquire  a metropolitan  character,  cannot 
be  classed,  in  respect  to  population,  with  !New  York 
and  Philadelphia,  — the  former  containing  1,040,000, 
the  latter,  775,000  inhabitants;  Boston  having  only 
342,000.  Our  population  is  homogeneous  in  char- 
acter, the  Yew  England  tone  and  spirit  dominating; 
and,  through  the  rich  blessings  of  onr  magnificent 
school  system,  educated  to  a knowledge  of  all  their 


24 


MAYOR’S  ADDRESS. 


rights  and  interests.  Another  objection  to  the  pro- 
posed charter  is  found  in  the  implied  distrust  running 
through  it,  — of  the  honesty  and  capacity  of  the 
people  to  conduct  municipal  affairs.  There  is 
ground  for  this  objection. 

The  subject  has  been  before  our  citizens  for  a long 
time.  It  has  been  examined  and  considered  in 
Council,  and  through  the  press.  Opposition  to  its 
adojDtion  has  been  so  pronounced  that  many  of  its 
leading  features  have  been  abandoned.  In  this 
amended  condition  it  will  come  before  you  for  your 
action.  I need  not  say  that  it  demands,  and  should 
receive,  that  carefid  and  considerate  attention  which 
is  due  to  its  importance. 

I cannot  refrain  from  saying,  before  passing  from 
the  subject,  that  without  doubt  salutary  changes 
might  be  made  in  our  present  charter.  Without 
doubt,  certain  municipal  departments  could  be  best 
managed  by  commissioners.  The  present  Board  of 
Street  Commissionei's  is  a great  and  recognized  im- 
provement on  the  old  system,  which  imposed  all  the 
vast  labors  performed  by  them  on  the  Board  of 
Aldermen.  The  business  of  this  department  has 
grown  so  large  that  the  machinery  of  a commission 
has  become  necessary. 

The  subject  of  water,  for  a like  reason,  is  more 
properly  controlled  by  a Board  of  Commissioners; 


MAYOR'S  ADDRESS. 


25 


blit  the  business  of  less  importance  — the  minor  in- 
terests and  affairs  of  the  city  — does  not  require,  and 
should  not  be  put  under,  the  control  of  commis- 
sioners. 

The  appointment  to  office  of  all  the  proposed  com- 
missioners by  the  Mayor  is  another  objectionable 
feature  of  the  new  charter. 

If  it  is  found  that  the  business  of  any  department 
of  the  public  service  can  be  better  performed  by  a 
Board  of  Commissioners,  the  City  Council  should  be 
empowered  to  provide  by  ordinance  for  the  creation 
of  such  Boards,  with  authority,  when  they  deem  it 
for  the  public  interest,  to  take  from  such  Boards  any 
powers  previously  given,  or  to  abolish  them  entirely. 


POLICE. 

I am  led  to  believe  that  the  duties  of  the  Police 
Department  have  been  performed  to  the  satisfaction 
of  the  public.  Their  duties  have  become  — with 
our  expanding  municipal  limits  — very  arduous.  It 
is  therefore  necessary  that  their  number  should  be 
increased. 

The  entire  police  force  is  only  700.  The  daily 
average  number  of  men  fit  for  duty  during  the  last 
year  has  been  675. 

The  city  contains  about  320  miles  of  streets,  and 

4 


26 


]\  I A Y 0 R ’ S ADDRESS. 


covers  an  area  of  over  22,000  square  acres.  At  this 
time,  when  so  large  a portion  of  our  laboring  popu- 
lation are  out  of  employment,  and  so  many  vagrants 
seek  the  city  from  other  places,  the  labor  of  the 
police  officer  must  be  greatly  augmented.  A faithful 
discharge  of  his  duties  must  draw  heavily  on  his 
physieal  and  mental  powers.  I doubt  if  any  city  of 
this  country,  of  equal  pojDulation  and  extent  of  terri- 
tory, is  protected  by  so  small  a force.  During  the 
past  year  a very  important  change  was  made  in  the 
management  of  the  department,  by  which  the  three 
different  divisions  of  the  force  perform  day  work  and 
night  work  in  turn.  Formerly  one  division  of  the 
police  performed  exclusively  day  work,  and  the  other 
division  night  and  early  morning  work.  I cannot 
appreciate  the  reasons  which  have  led  to  this  new 
arrangement,  and,  as  far  as  I can  learn,  it  has  pro- 
duced dissatisfaction  and  complaint. 

It  is  claimed  that  there  is  injustice  in  giving  one 
portion  of  the  police  day  work  wholly,  and  to  another 
night  work  wholly.  The  answer  to  the  objection  is 
apparent.  Let  the  most  desirable  post  of  duty  be 
assigned  to  the  most  meritorious,  as  the  reward  of 
merit. 

A policeman  is  a quasi  soldier,  and  should  be  stim- 
ulated to  the,  faithful  performance  of  duty  by  the 
hope  of  advancement.  The  good  behavior  and 


MAYOR’S  ADDRESS. 


27 


fidelity  of  the  London  police — the  best  disciplined 
and  most  efficient  body  to  be  found  in  any  city  — 
are  assured  by  promotion,  and  a pension  at  the  expi- 
I’ation  of  service. 

When  our  own  police  have  served  a long  term  of 
faithful  service,  some  provision  should  be  made  to 
secure  their  declining  years  from  want.  They  should 
not  be  compelled  to  depend  upon  charity  for  support. 
But  it  is  not  our  policy  to  grant  pensions  ; and  I 
suggest  that  the  fund,  noAV  amounting  to  over 
$60,000,  accumulated  from  the  witness  fees  of  offi- 
cers in  the  Municipal  Court,  which  the  policy  of 
the  law  does  not  allow  them  to  receive,  with  such 
witness  fees  as  are  now  paid  to  them  in  the  Superior 
Court,  be  appropriated  to  the  support  of  the  deserv- 
ing members  of  the  department  who  are  incapacitated, 
by  reason  of  age  and  infirmities,  from  further  service. 

It  is  thought  that  they  might  in  this  way  get  an 
amount  almost  equal  to  half-pay.  This  arrangement 
would  not  commit  the  city  to  the  payment  of 
pensions,  nor  become  a charge  upon  the  treasury. 

I think  the  efficiency  of  the  department  would 
be  best  maintained  by  a return  to  the  old  system. 

I believe  that  there  is  no  part  of  our  municipal 
expenditures  that  the  tax-payer  pays  so  willingly  as 
that  of  the  Police  Department.  Property  readily 


28 


MAYOE’S  ADDRESS. 


contributes  for  its  own  protection.  Few  grudge  the 
cost  of  that  which  protects  life  against  its  enemies. 

One  of  the  heads  of  the  London  police  assured  me 
that  the  worst  parts  of  tluxt  vast  metropolis  could  be 
traversed  with  perfect  safety  by  day  or  by  night;  and 
the  conviction  of  like  seciu*ity  in  every  quarter  of  the 
great  city  of  Paris  almost  reconciles  the  American  to 
the  irritating  presence  of  military  force. 

The  almost  daily  record  of  assaults  upon  our  citi- 
zens by  the  rough  jxrevents  us  from  boasting  a like 
immunity  from  danger,  and  vindicates  the  demand 
for  an  increase  of  our  police. 

SCHOOLS. 

The  school  year  ended  on  the  31st  August  last. 
I find  by  the  Report  of  the  Superintendent  of  Public 
Schools  that  the  whole  number  of  children  at  that 
time  in  the  city  between  five  and  fifteen  years  of  age 
was  58,636  — being  a decrease  for  the  year  of  1,619. 

There  were  eight  High  Schools,  fifty  Grammar 
Schools,  four  hundred  and  twenty-three  Primary 
Schools,  two  Licensed  Minor  Schools,  seventeen 
Evening  Schools,  six  Drawing  Schools,  one  School 
for  Deaf-Mutes,  one  Normal  School  for  Girls,  and 
one  Kindergarten  School. 

The  number  of  teachers  employed  was  1,306.  The 
increase  of  teachers  for  the  year  was  ten. 


MAYOR’S  ADDRESS. 


29 


The  total  expenditures  for  the  }’ear  were  . . $2,015,380  84 


Of  this  sura  there  was  paid  for  salaries  of 

teachers  .......  $1,235,375  24 

For  salaries  of  officers  . . $31,428  35 

For  iucideutal  expenses  . . 470,830  68 


Total  of  salaries,  and  incidentals  . . 502,259  03 

Expenditures  for  school-houses  and  lots  . . 277,746  57 

$2,015,380  84 


Vast  as  this  sum  is,  there  was  a decVease  of 
$65,661.57  from  the  cost  of  the  preceding  year;  but, 
according  to  the  Report,  this  decrease  does  not  result 
from  the  reduced  expense  of  teachers  and  incidentals, 
but  from  diminution  of  outlay  for  school  accommo- 
dation. 

I have  no  disposition  to  question  the  judgment  of 
the  committees  who  have  expended  this  large  sum  of 
$2,015,380.84  for  school  purposes  during  the  year; 
but  our  tax-burdened  citizens  should  be  informed,  if 
it  is  necessary  to  spend  so  much  money  on  our 
schools.  Boston  is  proud  of  her  public  schools;  but 
can  they  not  be  maintained  at  the  required  point  of 
excellence  at  less  cost?  Are  we  not  paying  propor- 
tionately more  than  other  cities?  These  are  questions 
we  shall  be  called  upon  to  answer,  and  a careful 
examination  into  facts  should  be  made  to  enable  us  to 
do  so. 


30 


MAYOR’S  ADDRESS. 


I do  not  undervalue  the  importance  of  our  school 
system.  It  is  the  support  of  our  political  institutions; 
but  it  is  not  so  sacred  as  to  repel  inquiry  into  its 
financial  management,  at  a time  when  our  increasing 
debt  makes  economy  in  every  branch  of  the  city  ser- 
vice a necessity.  We  shall  soon  want  — in  fact  we 
want  at  once  — new  school -houses  for  the  Latin  and 
High  Schools.  The  building  on  Bedford  street  cannot 
accommodate  these  schools,  and  more  than  one-half 
the  pupils  belonging  to  them  are  quartered  in  the 
South-street  and  Harrison-avenue  school-houses.  This 
arrangement  must  greatly  impair  the  discipline  and 
efficiency  of  these  institutions.  The  scholars  are  sep- 
arated from  the  head-masters,  so  that  the  supervision 
of  the  latter  is  greatly  diminished,  and  the  former  are 
much  discomforted  and  exposed  to  constant  danger 
from  fire. 

The  city  j)urchased  some  time  ago  a large  lot  of 
land  on  Warren  avenue,  for  the  accommodation  of 
these  schools;  but  it  has  been  thought  best  to  defer 
building  till  better  financial  times.  1 am  advised  that 
the  reasons  for  commencing  the  work  at  once  are 
urgent.  It  is  for  you  to  determine  what  should  be 
done  in  the  premises. 

Under  the  legislative  enactment  of  May,  1875,  the 
School  Board  was  reorganized  and  the  Board  of 
Supervisors  created.  Its  special  object  was  to  pro- 


]\I  A Y O R ’ S ADDRESS. 


31 


vide  a ” competent  and  impartial  agency  for  the 
examination  of  teachers  and  for  the  examination  of 
schools.”  It  would  seem  that  there  is  considerable 
friction  in  the  working  of  this  new  machinery,  re- 
sulting from  various  causes;  but,  as  far  as  I am  able 
to  judge,  mostly  from  differences  of  opinion  between 
the  Superintendent  and  the  Supervisors  touching 
their  respective  powers  and  duties  as  defined  by  the 
rules  and  regulations  of  the  School  Board.  It  is  a 
question  of  construction  merely. 

In  a change  so  important  as  that  effected  by  the 
act  it  is  to  be  expected  that  some  difficulties  should 
a]3pear  at  the  start ; but  these  are  easily  remedied  by 
the  School  Board,  and  the  success  of  the  schools 
requires  that  the  matter  should  be  arranged  at 
once. 

The  Superintendent  and  Supervisors  differ  esjie- 
cially  with  reference  to  the  authority  of  one  party  to 
direct  and  control  the  other.  Without  expressing 
any  opinion  as  to  the  merits  of  the  controversy,  I 
would  observe  that  in  my  judgment,  unless  the  Su- 
perintendent is  made  the  controlling  and  responsible 
head  of  the  system,  it  would  be  better  to  abolish  the 
office  and  save  the  treasury  the  amount  of  his  salary. 
If  the  Supervisors  are  to  perform  the  functions  of 
Superintendent,  the  latter  is  but  a suioernumerary , 

There  can  be  no  doubt  that  the  new  system,  when 


32 


MAYOR’S  ADDRESS. 


it  shall  get  into  full  working  order,  will  advance  the 
best  interests  of  our  schools  and  prove  a great  im- 
provement on  the  old.  It  will  be  more  efficient  and 
less  expensive,  giving  ns  better  teachers  and  a higher 
scholarship  in  the  pupils. 

Time,  however,  will  be  required  to  develop  fully 
these  expected  results. 

TAX  VALUATION. 

I desire  to  call  your  attention  to  the  subject  of 
real-estate  valuation  for  the  purpose  of  taxation. 
The  belief  obtains  to  a considerable  extent  with  the 
property-owners  of  this  city,  and  it  is  complained, 
that  real  estate  is  appraised  by  the  assessors  beyond 
its  true  value.  Questions  like  those  of  value  depend 
so  much  upon  opinion  — not  being  susceptible  of 
exact  demonstration  — that  honest  differences  of 
judgment  are  found  with  the  best  experts.  There 
is,  however,  without  doubt,  good  cause  for  the  com- 
plaint. Real  estate  — more  perhaps  than  any  other 
property  — has  suffered  from  the  long-continued 
stagnation  of  all  kinds  of  business.  It  had,  before 
the  so-called  panic,  under  the  inflation  of  prices 
resulting  from  the  excessive  issue  ot  an  unconverti- 
ble currency,  reached  a value  very  disproportionate 
to  its  true  value.  For  the  last  three  years  it  has 


MAYOR’S  ADDRESS. 


33 


been,  to  a great  extent,  unproductive.  Great  num- 
bers of  dwelling-houses  and  stores  are  untenanted. 
Rents  have  fallen  so  low  as  to  leave  the  landlord 
little  bej^ond  his  taxes.  Whenever  forced  sales  are 
made,  the  prices  realized  are  greatly  under  the 
original  cost.  To  depress  still  further  improved  real 
estate,  buildings  can  now  be  erected  at  a cost  of 
thirty  per  cent,  less  than  the  prices  of  1874.  In  this 
abnormal  condition  of  things,  the  assessors  must  find 
it  difficult  to  make  just  valuations.  But  they  make 
mistakes,  because  they  do  not  realize  that  the  prices 
of  1874,  from  which  they  now  abate,  were  inflated, 
and  not  true  prices.  The  extent  of  the  complaint 
of  over- valuation  is  evidence  of  its  justice. 

Since  the  preparation  of  this  address  we  are  in- 
formed by  my  predecessor,  in  his  valedictory,  that  it 
will  be  necessary  to  reduce,  next  year,  the  valuation 
of  real  estate  $50,000,000,  'Ho  bring  it  to  a point 
that  will  approximate  to  its  fair  market  value.” 

Over-valuation  is  not  only  wrong  in  principle,  but 
is  impolitic,  and  results  in  mischievous  consequences. 

Practically  it  may  make  no  difference  with  the 
tax-payer  whether  he  pay  a low  rate  of  tax  on  a high 
valuation,  or  a high  rate  on  a low  valuation,  if  it 
results  in  paying  the  same  amount  of  tax;  but  high 
rates  check  municipal  extravagance  by  alarming  the 
ballot-holding  tax-payer.  We  have  a more  realizing 


34 


MAYOR’S  A I)  R E S S . 


sense  of  heavy  taxation,  if  the  rate  be  high,  although 
the  valuation  is  low,  than  if  it  were  reversed.  Over- 
valuation is  an  ingenious  device  to  delude  the  people 
into  the  belief  that  they  are  not  heavily  taxed. 
Over-valuation  helps  the  dealer  in  real  estate  to 
excessive  prices,  as  the  estimates  of  assessors  are 
often  invoked  to  deceive  the  judgment  of  purchasers. 
It  would  not  be  difficult  to  give  many  cases  where 
the  hard-earned  wages  of  labor  have  been  lost  by 
trusting  too  much  to  the  valuation  of  assessors  in 
the  purchase  of  the  homestead  which  the  policy  of 
the  law  invites  each  citizen  to  possess. 

Savings-banks  and  Trust  institutions  have  suffered 
from  over-valuation.  They  are  forbidden  to  loan  on 
mortgage  more  than  two-thirds  of  the  taxation  value 
of  real  estate,  the  law  assuming  that  this  margin 
would  be  ample  security  against  depreciation;  but 
by  reason  of  over-valuation  this  margin  is  often  lost, 
and  cases  are  not  rare  where  the  collateral  would  not 
pay  the  debt. 

Over-valuation  misleads  the  property-holder  to 
false  estimates  of  his  wealth,  and  induces  habits  of 
expense  which  he  cannot  afford.  It  gains  for  him  in 
business  a credit  to  which  he  is  not  entitled,  by 
making  him  the  apparent  owner  of  more  than  he 
really  has.  It  increases  the  amount  of  our  propor- 
tion of  the  State  tax,  and,  by  extending  the  limit 


A Y 0 R ’ S ADDRESS. 


35 


imposed  by  law  on  municipal  indebtedness,  encour- 
ages municipal  extravagance. 

Furthermore,  over-valuation  is  wrong  because  con- 
trary to  the  oath  of  the  assessor.  His  official  duty 
requires,  and  he  is  sworn,  to  appraise  all  property 
subject  to  taxation  at  its  ” true  and  fair  cash  value.” 

These  remarks  are  not  intended  to  reflect  on  any 
one.  The  able  Board  now  serving  the  city,  if  they 
have  erred  in  judgment,  have,  without  doubt,  hon- 
estly erred,  and  have  been  influenced  by  no  improper 
motives.  I have  merely  pointed  out  the  mischiefs 
Avhich,  in  my  opinion,  flow  from  the  non-observance 
of  the  true  principles  of  tax  valuation. 


BOARD  OF  HEALTH. 

It  gives  me  great  pleasure  to  record  the  success 
with  which  the  Board  of  Health  are  discharging 
their  important  duties.  I have  examined  with  some 
care  their  reports,  and  am  satisfied  that  they  are 
doing  their  work  faithfully  and  well. 

During  the  past  year  they  have  abated  more  than 
ten  thousand  nuisances  affecting  health,  and  in- 
spected and  ordered  to  be  vacated  one  hundred  and 
forty-eight  houses  as  unfit  for  habitation.  They  have 
instituted  sixty-four  prosecutions  for  violation  of 
sanitary  laws  and  ordinances.  Under  their  super- 


36 


MAYOR’S  ADDRESS. 


vision  all  garbage  and  refuse  matter  have  been 
promptly  collected,  and  the  streets  kept  in  a clean 
condition.  There  have  been  during  the  year  but 
seven  cases  of  small-pox,  five  at  East  Boston  and 
two  at  Quarantine.  ]S^o  case  has  appeared  in  the 
city  proper. 

Frequent  inspection  has  kept  the  tenement  houses 
in  improved  condition. 

In  a special  communication  of  the  Board  to  the 
City  Council,  in  December,  1874,  attention  is-  called 
to  the  Boxbury  canal,  Stony-brook  and  Muddy-brook 
sewers,  nuisances  of  the  greatest  danger  to  the  pub- 
lic health.  In  their  last  report  the  subject  is  again 
brought  earnestly  to  our  notice. 

Stony-brook  sewer  has  for  years  discharged  the 
sewage  of  a very  large  population  over  about  one 
hundred  acres  of  Back-bay  flats.  When  the  warm 
season  comes  the  exhalations  and  odors  therefrom 
will  be  most  dangerous.  • 

The  assistance  of  the  City  Government  is  invoked 
by  the  Board  to  remedy  the  evil. 

They  declare  the  Boxbury  canal  to  be  a nuisance 
that  cannot  be  abated  except  by  filling,  which,  in 
their  opinion,  cannot  be  done  unless  the  sewer  outlets 
are  located  elsewhere. 

The  Board  suggests  the  removal  of  the  contents  of 
the  burial-grounds  in  their  charge  to  some  cemetery 


MAYOR’S  ADDRESS. 


37 


without  the  city  limits.  If  this  were  done,  both  the 
proprietors  of  the  grounds  and  the  city  would  be 
benefited,  and  the  land  utilized  for  some  other 
purpose. 

They  advise  better  ventilation  in  some  of  the 
schools. 

FIRE  COMMISSION. 

The  Board  of  Fire  Commissioners  was  organized 
and  commenced  their  work  Nov.  20th,  1873. 

Their  duties  are  arduous  and  diflSicult.  They  were 
required  to  reorganize  the  entire  Fire  Dej)artment. 

Radical  changes  in  any  institution  meet  in  the 
beginning  with  more  or  less  opposition,  resulting  in 
more  or  less  friction.  Most  of  the  obstacles  which 
the  Board  was  obliged  to  encounter  have  fortu- 
nately disappeared;  and,  from  such  information  as  I 
have  been  able  to  get,  it  would  seem  that  the  new 
system  meets  with  general  approval.  It  is  believed 
that  it  will  secure  better  discipline  and  more  efficacy, 
without  increase  of  expense. 

The  Board,  in  their  report  of  1875,  claim  ” that 
the  department,  as  now  constituted,  is  one  every  way 
creditable  to  the  city,  and  a force  more  reliable,  and 
better  able  than  ever  before  to  give  the  protection  to 
property  which  may  he  justly  expected  from  it.” 
There  is  reason  to  believe  that  this  claim  is  well 


38 


MAYOR’S  ADDRESS. 


founded.  The  principles  upon  which  the  depart- 
ment is  managed,  if  strictly  adhered  to,  must  ulti- 
mately accomplish  all  the  objects  designed  by  the 
act  establishing  the  commission. 

LICE^^^SE  COMMISSIO]N^EIlS. 

The  Prohibitory  Liquor  Law  of  this  State,  being 
in  advance  of  public  opinion,  was  not,  and  could  not 
be,  enforced.  Its  repeal  was  wise  and  judicious. 
True  statesmanship  regulates  what  it  cannot  eradi- 
cate. Legislation  for  the  repression  of  vice  and  the 
promotion  of  good  morals  should  be  practical  in 
character,  so  that  its  objects  may  be  accomplished. 
The  present  license  laws  are  a step  in  the  right 
direction.  That  they  satisfy  the  people  may  be 
inferred  from  the  small  number  of  votes  thrown  for 
the  Prohibitory  candidates  in  the  recent  State  elec- 
tion. Their  enforcement  is  not  difficult,  and  salutary 
results  have  flowed  from  them.  There  are  now 
fewer  places  in  this  city  where  intoxicating  drinks 
are  sold  than  before  the  law,  and  the  records  of  our 
courts  exhibit  the  gratifying  fact  that  cases  of 
drunkenness  are  greatly  diminishing.  We  may 
never  purge  our  city  of  the  vice  of  intemperance, 
but  we  may  approximate  a consummation  so  devoutly 
to  be  wished. 


MAYOR’S  ADDRESS. 


39 


CITY  INSTITUTIONS. 

My  imperfect  knowledge  of  some  of  the  subjects  of 
municipal  concern  does  not  permit  me  at  this  time  to 
speak  of  them.  They  will  receive  my  early  atten- 
tion, and  I may  desire,  hereafter,  to  make  to  you 
suggestions  in  relation  to  them.  I have  reason  to 
believe,  from  the  ability  and  high  character  of  those 
who  have  supervision  of  the  various  charitable  and 
reformatory  institutions  of  the  city,  and  from  such 
inquiry  as  I have  made,  and  such  limited  personal 
examination  as  I have  had,  that  these  institutions  are 
successfully  accomplishing  the  important  objects  for 
which  they  were  established. 

PUBLIC  LIBRAEY. 

The  Public  Library  retains  its  favor  with  the 
public.  Its  value  and  usefulness  are  beyond  esti- 
• mate.  The  condition  and  management  of  the  in- 
stitution reflect  great  credit  upon  its  directors. 

OVERSEERS  OF  THE  POOR. 

The  question  has  been  raised  whether  the  powers 
and  functions  of  the  Overseers  of  the  Poor  could  not 
be  more  economically  and  properly  exercised  by  the 
Board  of  Directors  of  Public  Institutions.  I am  not 
sufficiently  acquainted  with  the  subject  to  give  thereon 


40 


MAYOR’S  ADDRESS. 


any  opinion  of  value.  If  the  matter  should  come 
before  yon  hereafter,  it  will,  without  doubt,  be 
thoroughly  examined  and  considered,  so  that  the 
merits  of  the  case  will  fully  develop. 

BOARD  OF  REGISTRARS  OF  VOTERS. 

I am  not  aware  that  there  is  any  suggestion  to 
make  respecting  the  powers  given  by  law  to  the 
Board  of  Registrars  of  Voters.  They  are  well  de- 
fined and  ample.  When  properly  enforced,  fraudulent 
registration  must  be  difficult,  and  honest  and  fair 
elections  as  well  assured  as  they  can  be  in  large 
cities. 

In  addition  to  the  duties  originally  imposed  on  the 
Board,  it  is  required,  by  the  act  of  1876,  to  prepare 
the  list  of  jurors.  This  work  has  hitherto  been 
performed  by  the  City  Clerk. 

REFERENCE  TO  THE  NEXT  CITY  GOVERNMENT. 

I hope  we  shall  be  able  to  keep  abreast  of  our 
business.  The  habit  of  leaving  a legacy  of  unfinished 
work  to  our  successors,  by  referring  matters  to  the 
next  City  Government,  should  be  abandoned.  It  leads 
to  great  inconvenience  and  loss  of  time.  When  a 
subject  has  been  examined,  so  that  its  merits  are 
understood,  it  should  be  acted  upon  without  un- 
necessary delay,  but  it  is  often  allowed  to  drag 


]\I  A Y O K ’ S ADDRESS. 


41 


along  till  near  the  close  of  the  year,  when  a motion 
” to  refer  ” makes  an  easy  disposition  of  it.  The  next 
City  Government  cannot  take  immediate  action  be- 
cause uninformed  in  the  matter.  A great  deal  of 
business,  thus  laid  over,  is  not  reached  until  June, 
when  vacation  begins.  Little  is  done  until  the  fall. 
From  this  time  to  January,  business  crowds,  and 
reference  perhaps  is  made  to  another  City  Govern- 
ment, of  what  was  inherited  from  that  j)receding. 
4Ve  have  on  onr  docket  a good  deal  of  this  referred 
work. 

I have  thus  brought  to  your  attention  some  of  the 
important  municipal  matters  upon  which  yon  will 
be  called  to  act. 

It  must  be  apparent  to  yon,  from  their  number  and 
gravity,  that  the  offices  to  which  yon  have  been 
elected  are,  if  the  duties  pertaining  to  them  be  well 
performed,  no  sinecures. 

Your  labors  will  be  difficult  and  trying.  Yon  will 
be  unable  to  please  every  one.  There  will  be  dis- 
satisfaction and  grumbling.  There  will  be  heavy 
drafts  on  your  patience,  your  tempers,  and  yoiir 
courage.  But  let  us,  unmindful  of  the  complaints 
of  the  unreasonable,  the  importunities  of  the  selfish, 
and  all  personal  consequences,  execute  the  trusts 
reposed  in  ns  without  fear  or  favor,  looking  only  to 

the  welfare  and  prosperity  of  our  beloved  city. 

6 


1 


APPENDIX. 


The  following  is  an  Exhibit  of  the  totdX  funded  and  unfunded 
debt  of  the  City,  December  31,  1876,  compared  with  the 
debt  of  the  city  at  the  close  of  the  year  1875  : — 


Funded  debt  . 

Unfunded  debt,  includ- 
ing loans  authorized 
but  not  negotiated,  as 
follows : — 

Dec.  31,  1875.  Water 
works.  Wards  17  and 
19,  balance . 

Amount  advanced  by  the 
Treasurer  on  Oliver 
street  .... 


Dec.  31,  1876.  Dec.  31,  1875. 

$44,958,822  30  $43,886,632  24 


$15,000  00 

^9Q  9« 

— ^ 99,329  28  1,247,629  28 


$45,058,151  58  $15,134,261  52 


Decrease  of  the  gross  debt  during  the  municipal  year, 
1876,  $76,109.94. 

The  means  on  hand  for  the  payment  of  this  debt  of 


$45,058,151.58,  December  31,  1876,  compared  with  those  of 
1875,  Avere  as  follows  : — 

Dec.  31,  1876.  Dec.  31,  1875. 

Funds  in  the  hands  of  the  Sinking  Fund 

Commissioners $15,782,996  93  $15,253,555  73 

Public  land  and  other  bonds  pledged 
for  the  payment  of  the  debt  , . 898,792  41  1,128,070  77 


$16,681,789  34  $16,381,626  50 


Increase  of  means  during  the  municipal  year  1876, 
$300,162.84. 


44 


APPENDIX. 


The  ^ro5s  debt  December  31,  1876,  was  . . , $45,058, 151  58 

The  means  on  hand  for  the  j^ayment  of  the  same, 

December  31,  1876  . • 16,681,789  34 

Net  debt,  Dec.  31,  1876,  was $28,376,362  24 


The  net  del)t  of  the  city,  December  31,  1875,  was 
$28,752,635.02,  which,  compared  with  that  of  December 
31,  1876,  as  above,  shows  a decrease  of  the  net  debt  during 
the  year  1876,  amounting  to  $376,272.78,  while  the  gross 
debt  was  decreased,  as  before  stated,  $76,109.94. 

During  the  year  1876  the  payments  on  account  of  the 
debt  amounted  to  $2,300,018.58,  and  the  certificates  of 
indebtedness  for  this  amount  were  cancelled. 

The  gross  debt  is  classified  by  the  Auditor  of  Accounts  as 


follows  : — 

Dec.  31,  1876. 

Dec.  31,  1875. 

City  debt  proper 

$25,481,389  06 

$26,950,326  58 

* Cochituate  water  debt  (net  cost  of  the 
works) 

14,121,521  92 

12,546,739  19 

War  loans  (outstanding)  . 

1,794,500  00 

1,794,500  00 

Roxbury  debt  (outstanding) 

423,600  00 

444,750  00 

Dorchester  debt  (outstanding)  . 

109,500  00 

121,500  00 

Charlestown  debt  (outstanding)  : — 
City  ..... 

1,195,000  00 

1,227,805  15 

Mystic  Water 

1,249,000  00 

1,223,000  00 

Brighton  debt  (outstanding) 

233,640  60 

355,640  60 

West  Roxbury  debt  (outstanding) 

450,000  00 

470,000  00 

$45,058,151  58 

$45,134,261  52 

The  outstanding  loans  of  all  kinds 
amount  to 

$45,058,151  58 

Less  Water  loans,  as  follows  : — 
Cochituate  Water  loans  . 

$11,755,711  11 

Mystic  Water  loans 

1,249,000  00 

We  have  the  total  amount  of  loans  outstanding  for  all 

13,004,711  11 

other  purposes  than  for  watej^  works 

. 

$32,053,440  47 

*The  outstanding  Cochituate  water  loans,  $11,765,711.11. 


APPENDIX 


45 


The  amount  in  the  hands  of  the  Sinking  Fund  Commis- 
sioners, for  the  redemption  of  the  Cochituate  and  Mystic 
water  loans,  is  $1,844,507.77,  and  is  included  in  the  total 
means  in  their  hands  for  redeeming  the  debt,  thus  leaving 
for  the  payment  of  the  $32,053,440.47,  with  the  Sinking 
Fund  Commissioners,  $13,938,489.16,  to  which  is  to  be 
added  the  bonds  also  pledged  for  the  payment  of  the  debt, 
less  those  received  on  account  of  the  water  works,  $3,088,  to 
the  amount  of  $895,704.41 ; in  the  total  $14,834,193.57. 


The  following  is  a statement  of  the  gross  funded  and 
unfunded  debt,  and  also  of  the  net  debt  of  the  city  at  the 
close  of  the  financial  years,  commencing  with  1861-62, 
which  is  April  30  in  each  year  : — 


Gross, 

Net. 

1861-62  . 

. $9,095,037  65 

$8,307,208  45 

1862-63  . • . 

10,520,517  95 

9,329,616  82 

1863-64  . 

11,248,778  95 

9,785,591  28 

1864-65  . 

11,497,699  32 

9,876,443  91 

1865-66  . 

12,180,250  70 

9,140,660  38 

1866-67  . 

13,021,463  15 

8,581,184  83 

1867-68  . 

14,146,900  65 

8,947,530  93 

1868-69  . 

17,304,435  80 

10,434,446  69 

1869-70  . 

. 21,818,411  93 

12,602,580  68 

1870-71  . 

. 26,666,436  73 

15,033,476  82 

1871-72  . 

28,628,535  82 

15,779,376  51 

1872-73  . 

. 31,841,156  44 

17,914,378  52 

1873-74  . 

. 43,137,463  12 

27,719,890  37 

1874-75  . 

43,512,611  12 

27,294,208  20 

1875-76  . 

. 43,933,165  01 

27,052,777  60 

f 


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i630. 


T H E 

INAUGUEAL  ADDKESS 


HENET  L.  FIERCE 


THE  CITY  COUNCIL, 


JANUARY  7,  1878 


B O S T O N : 

LL  AND  CHURCHILL,  CITY  PRINTERS, 

No.  39  ARCH  STREET. 

1878. 


ROC 


T H K 


INAUGUKAL  ADDRESS 

O F 

HENEY  L,  PIEECE 

AIAA^OR  OF  BOSTON, 


THE  CITY  COUNCIL, 

JANUARY  7,  1878. 


'BOSTON: 

ROCKWELL  AND  CHURCHILL,  CITY  PRINTERS 

No.  39  ARCH  STREET. 

1878. 


CITY  OF  BOSTON. 

In  Common  Council,  January  7, 1878. 

Ordered,  That  Ilia  Honor  the  Mayor  he  requested  to  furnish  a copy  of  his  address,  and 


that  the  same  be  printed. 
Sent  up  for  concurrence. 

BENJAMIN  POPE,  President. 

Concurred. 

In  Board  of  Aldermen,  January  14,  1878. 

S.  B.  STEBBINS,  Chairman. 

ADDRESS. 


Gentlemen  of  the  City  Council : — 

The  election  which  placed  in  onr  hands  the 
administration  of  the  City  Government  during  the 
present  year  was  one  of  more  than  ordinary  inter- 
est and  importance.  It  has  shown  in  an  unmis- 
takable manner  the  determination  of  the  citizens  to 
prevent  the  establishment  in  onr  municipal  affairs  of 
what  is  known  as  the  spoils  system,”  — that  is, 
appointment  to  office  as  a reward  for  party  service. 
Such  a system  applied  to  municipal  affairs  has  not 
even  the- poor  excuse  which  is  made  for  its  applica- 
tion in  national  politics,  inasmuch  as  the  service  for 
which  the  reward  is  given  is  service  to  a party 
founded  wholly  on  national  issues,  and  maintained 
for  the  furtherance  of  political  schemes  in  which  the 
city,  in  its  corporate  capacity,  has  no  concern. 
Whatever  is  commendatory  in  the  past  management 
of  our  local  government  is  largely  due  to  the  reten- 
tion of  those  executive  officers  who  have  shown 
themselves  to  be  honest  and  capable  in  the  perform- 


4 


MAYOR’S  ADDRESS. 


ance  of  their  duties.  This,  I believe,  is  fully  under- 
stood and  appreciated  by  those  who  desire  to  secure 
an  efficient  and  economical  administration  of  the 
government,  and  who,  it  is  apparent,  comprise  a 
majority  of  the  voters. 

In  proceeding  to  discharge  the  first  duty  which  the 
city  charter  devolves  upon  the  chief  executive,  I 
venture  to  preface  the  customary  statement  in  regard 
to  the  city  business  with  some  general  considerations 
concerning  the  scope  and  purpose  of  the  powers  with 
which  we  have  been  intrusted. 

Municipal  corporations,”  says  an  eminent  jurist, 

are  created  and  exist  for  the  public  advantage,  and 
not  for  the  benefit  of  their  officei’S,  or  of  particular 
individuals  or  classes.  The  corporation  is  the  arti- 
ficial body  created  by  the  law,  and  not  the  officers, 
since  these  are,  from  the  lowest  up  to  the  council- 
man, or  mayor,  the  mere  ministers  of  the  corporation. 
The  statutes  of  the  State  confer  upon  the  corporation 
all  the  power  it  possesses,  prescribe  all  its  duties, 
and  impose  all  liabilities  to  which  it  is  subject.” 

Therefore,  to  manage  its  affairs  in  the  interests  of 
a political  party,  or  a religious  sect,  or  a class,  is  an 
abuse  of  trust  on  the  part  of  the  official  who  does  so 
as  much  to  l)e  condemned  as  the  conduct  of  a director 
of  a railway  company,  or  trustee  of  a savings’  bank, 
who  selects  the  employes  of  his  corporation  solely 


MAYOR’S  ADDRESS. 


O 


with  a view  to  promote  the  interests  of  the  party  or 
the  sect  to  which  he  happens  to  belong. 

That  there  shonlcl  be  differences  of  opinion  among 
the  citizens  as  to  the  best  method  of  carrying  on  the 
city  business  is  to  he  expected;  and  the  frank  and 
fearless  expression  of  these  differences  is  by  no 
means  to  be  discountenanced.  But  the  danger  to 
our  municipal  institutions  lies  in  the  fact  that  in  our 
local  elections  we  divide,  not  on  the  best  way  of 
carrying  on  the  city  business,  but  on  the  best  way  of 
carrying  on  our  national  affairs;  — not  on  the  question 
Avhether  Ave  shall  -expend  a large  sum  of  money  for 
public  parks  and  improved  sewerage,  but  Avhether  Ave 
shall  have  free  trade  and  a metallic  currency.  Such 
a division  is  manifestly  absurd.  It  is  due,  of  course, 
to  the  fact  that  the  national  party  machinery  furnishes 
the  readiest  means  for  making  nominations  and  con- 
trolling the  voters ; but  there  ought  to  be  intelligence 
enough  among  the  members  of  a ]STeAV  England  com- 
munity to  enable  them  to  discriminate  betAveen  their 
relations  to  the  State  and  the  nation,  and  their  re- 
lations to  the  corporation  established  simply  for  the 
management  of  their  local  concerns. 

The  enormous  debts  contracted  by  the  leading 
American  cities  during  and  since  the  late  Avar 
have  become  a source  of  much  anxiety,  not  only 
to  property-holders,  but  to  all  men  Avho  are  inter- 


6 


MAYOR’S  ADDKE'SS. 


estecl  in  the  prosperity  of  Kepublican  institutions. 
This  anxiety  has  given  rise  to  a variety  of  schemes 
for  improving  our  local  governments,  some  of  them 
limited  to  special  points  of  administration,  and  oth- 
ers covering  an  entire  change  of  the  present  sys- 
tem. I will  mention  several  which  have  excited 
considerable  comment  lately,  and  to  which  I think 
there  are  grave  objections.  One  of  them  provides 
for  a property  qualihcation  on  the  part  of  the  electors 
of  municipal  officers,  — especially  of  those  officers 
who  control  the  financial  department.  This  propo- 
sition is  not  a new  one ; but  it  has  gained  prominence 
lately  by  the  report  of  a commission  appointed  by 
Governor  Tilden,  of  ^ew  York,  recommending  that 
in  cities  of  that  State,  having  a population  of  over 
one  hundred  thousand,  a board  of  finance  should  be 
elected  by  those  who  pay  a tax  on  property  valued  at 
five  hundred  dollars  and  over;  and  those  who  pay  a 
yearly  rent,  on  premises  within  the  city,  of  not  less 
than  two  hundred  and  fifty  dollars, — the  board  to 
have  control  of  the  annual  tax  levy,  and  the  appro- 
priations for  municipal  purposes.  A member  of  that 
commission,  in  a recently  published  essay  on  the 
administration  of  American  cities,  states  the  propo- 
sition in  this  way:  The  cities  of  antiquity,  from 
whicli  we  deiive  our  ideas  of  municipal  government, 
were  governments  proper;  the  city  represented  the 


MAYOR’S  AD  D R E S S . 


7 


commonwealth.  The  modern  cities  have  no  political 
functions;  they  are  corporations,  instituted  princi- 
pally for  the  administration  of  property  interests; 
therefore  the  property-owners  and  rent-payers  should 
elect  municipal  officers  — especially  those  who  con- 
trol the  financial  affairs  — just  as  the  stockholders  of  a 
railroad  elect  the  directors,  and  determine  the  gen- 
eral policy  of  the  road. 

At  a meeting  of  the  American  Social  Science  As- 
sociation, a few  months  since,  a citizen  of  this  State, 
of  large  experience  and  independent  political  views, 
submitted  some  observations  on  the  relations  of  the 
State  and  municipal  governments,  and  the  reform 
of  the  latter.  His  conclusions  may  he  summed  up 
as  follows:  The  State,  which  makes  the  criminal 
laws,  the  school  laws,  and  the  charity  laws,  should 
carry  them  out  under  a common  system  throughout 
its  borders,  by  its  own  organizations  and  agencies, 
and  no  longer  divide  the  duties  with  counties  and 
municipalities;  that  is  to  say,  the  police,  the  prisons, 
the  almshouses,  and  the  schools,  should  be  under  the 
direct  control  of  the  State,  leaving  to  the  municipali- 
ties simply  the  care  of  the  streets  and  buildings,  the 
fire  de])artment,  sewerage,  water,  gas,  street  rail- 
ways, and  ])arks.  As  all  these  concern  property 
alone,  it  would  not,  he  says,  be  inconsistent  with  the 
American  principle  of  universal  suffrage,  to  limit 


8 


MAYOR’S  ADDRESS. 


the  right  of  voting  upon  these  matters  to  the  owners 
and  occupants  of  the  property. 

These  are  the  conclusions  of  intelligent  men  who 
have  given  the  subject  considerable  attention,  and 
whom  nobody  can  properly  accuse  of  being  influenced 
by  any  partisan  or  class  considerations.  There  has  been 
no  attempt,  that  I am  aware  of,  to  refute  these  con- 
clusions, and,-  as  a consequence,  many  persons  in  our 
large  cities  are  beginning  to  look  to  the  adoption  of 
these  measures  as  the  only  safeguard  against  a corrupt 
and  reckless  expenditure  of  the  public  funds.  While 
I am  fully  sensible  of  the  defects  in  our  present  sys- 
tem of  municipal  administration,  I cannot  help 
regarding  with  distrust  any  scheme  for  curing  them 
by  a radical  change  of  the  iSTew  England  system 
under  which  we  have  grown  up;  and  which,  not- 
withstanding its  defects,  has  thus  far  produced  bet- 
ter results  than  any  other  system  that  has  been 
tried  in  this  country.  I cannot  do  more  at  this  time 
than  indicate  very  briefly,  and  I fear  very  im- 
perfectly, the  reasons  I have  for  doubting  the  pro- 
priety, or  the  expediency,  of  attempting  to  raise  the 
standard  of  municipal  government  by  a limitation  of 
the  suffrage. 

Such  legislation  would  be  contrary  to  the  tradi- 
tions, the  education,  and  the  practice  of  our  people, 
and  would  create  a sense  of  personal  wrong  on  the 


MAYOR’S  ADDRESS. 


9 


part  of  those  who  were  deprived  of  the  full  privi- 
leges of  citizenship,  which,  in  its  evil  elfects,  would 
far  outweigh  any  good  results  that  would  follow 
the  adoption  of  such  a policy. 

It  is  hardly  probable  that  a condition  of  things  can 
arise  in  any  city  in  'New  England  where  those  who 
have  an  interest  in  maintaining  order  will  be  out- 
numbered by  those  who  hope  for  some  personal 
benefit  by  creating  disorder;  therefore,  if  those  who 
have  interests  at  stake  will  bestir  themselves  to  pro- 
tect their  interests,  — and  there  is  no  safety  in  any 
scheme  which  can  be  devised  unless  they  do  so, — 
they  can  better  accomplish  their  purpose  by  outvot- 
ing their  opponents  than  by  undertaking  to  deprive 
them  of  privileges  which  they  now  possess.  In  a 
recent  argument  in  favor  of  extending  household 
suffrage  to  the  counties  in  England,  Mr.  Gladstone 
says  the  franchise  is  an  educational  power.  The 
possession  of  it  quickens  the  intelligence,  and  tends 
to  bind  the  nation  together.  It  is  more  important  to 
have  an  alert,  well-taught,  and  satisfied  people  than 
a theoretically  good  legislative  machine. 

JN^early  twenty-five  years  have  passed  since  I gave 
this  subject  my  thoughtful  and  conscientious  con- 
sideration, and  reached  the  conclusions  which  I 
have  here  expressed.  My  subsequent  experience 
has  confirmed  me  in  the  soundness  of  the  position 


10 


MAYOR’S  ADDRESS. 


which  I then  assumed,  and  to  which  steadily  I have 
adhered. 

For  an  answer  to  the  proposition  that  the  State 
should  assume  the  direct  control  of  certain  depart- 
ments of  the  City  Government,  it  is  only  necessary 
to  refer  to  the  utter  failure  of  the  plan  which  was 
resorted  to  in  ^sTew  York,  some  years  ago,  of  having 
certain  city  officers  appointed  by  the  Governor  or 
the  Legislature.  In  the  beginning  the  standard  was 
improved ; but  it  was  not  long  before  these  men,  who 
had  been  saddled  upon  the  city  by  an  outside  power, 
became  more  corrupt  and  arbitrary  than  the  local 
officers  whom  they  had  superseded,  and  the  inhabi- 
tants of  the  city  found  themselves  enclosed  in  a ring 
which  they  had  no  power  to  break  except  through 
the  success  of  an  appeal  to  the  State.  The  sugges- 
tion that,  by  allowing  the  State  to  control  the 
schools,  the  police,  and  the  penal  and  reformatory 
institutions,  we  should  secure  greater  uniformity  and 
economy  in  their  administration,  might  be  answered 
by  pointing  to  the  dangers  which  are  likely  to 
follow  from  the  centralization  of  power.  If,  in 
order  to  secure  greater  uniformity  in  our  methods  of 
conducting  the  public  business,  we  acquiesce  in  the 
assumption  by  the  State  of  jjowers  which  from  time 
immemorial  we  have  been  permitted  to  exercise,  and 
through  the  direct  exercise  of  which  we  are  educated 


MAYOR’S  ADDRESS. 


11 


to  act  intelligently  in  the  government  of  the  State 
and  the  nation,  will  not  the  gain  be  more  than 
counterbalanced  by  the  loss?  Before  making  a rad- 
ical change  in  one  part  of  our  system  it  would  be  well 
to  study  the  probable  effect  upon  the  other  parts. 

THE  CITY  CHARTER. 

In  my  address  to  the  City  Council,  in  1873, 1 called 
attention  to  the  fact  that  the  growth  of  this  city  had 
created  the  necessity  for  certain  changes  in  our 
methods  of  doing  the  city  business,  and  suggested 
the  appointment  of  a commission  to  revise  the  City 
Charter.  The  suggestion  was  adopted,  the  draft  of  a 
new  charter  was  prepared,  and  submitted  to  the 
approval  of  the  City  Council. 

Though  frequently  discussed  during  the  past  three 
years,  and  though  there  has  been  substantial  una- 
nimity among  members  of  the  government  as  to  the 
necessity  of  changing  certain  parts  of  the  present 
system,  the  two  branches  have  been  unable  to  agree 
upon  the  details,  and,  therefore,  the  subject  comes  to 
us  as  unfinished  business.  I have  unofficially  ex- 
pressed my  approval  of  most  of  the  recommenda- 
tions made  by  the  commission. 

An  attempt  has  been  made  to  prejudice  the  work 
by  referring  to  the  changes  proposed  as  radical  and 
revolutionary;  but  those  who  used  the  terms  were 


12 


MAYOR’S  ADDRESS. 


evidently  unfamiliar  with  the  present  form  of  govern- 
ment. With  one  or  two  exceptions,  which  I have 
doubted  the  propriety  of  adopting,  the  changes  are 
strictly  in  conformity  with  those  parts  of  the  system 
now  in  force,  which  have  been  found  best  adapted  to 
the  requirements  of  a large  city.  In  view  of  the 
difficulty  of  arriving  at  any  satisfactory  agreement 
concerning  the  details  of  a new  charter,  it  seems  ad- 
visable to  give  up  the  attempt  to  secure  a complete  re- 
vision, and  confine  the  application  for  new  legislation 
to  those  matters  which  require  immediate  attention. 

This  city  is,  as  you  are  doubtless  aware,  governed 
partly  by  special  laws,  of  which  the  act  of  incorpora- 
tion, or  charter,  as  it  is  called,  is  one,  and  partly 
by  general  laws,  which  are  equally  applicable  to  all 
the  cities  and  towns  in  the  Commonwealth.  When 
the  first  charter  was  adopted,  in  1822,  it  simply  gave 
the  City  Council  the  powers  formerly  exercised  by  the 
inhabitants  in  town  meetings  assembled,  those  powers, 
with  few  exceptions,  being  defined  by  general  stat- 
utes. From  time  to  time,  as  the  population  has 
increased,  some  of  these  general  laws,  which  operated 
satisfactorily  in  the  towns  and  small  cities,  have  been 
found  inadequate  to  the  peculiar  wants  of  a large 
city ; and  special  laws  have  been  passed,  as  the  neces- 
sity for  them  has  been  demonstrated.  It  is  evident 
.that  still  further  changes  are  needed  in  this  direction. 


MAYOR’S  ADDRESS. 


13 


I invite  your  serious  and  earnest  attention  to  the 
necessity  of  procuring  some  special  enactments  re- 
lating to  the  registration  of  voters,  and  the  methods 
of  conducting  elections  in  this  city.  The  present 
general  laws  are  clearly  insufficient  to  prevent  the 
perpetration  of  frauds,  whereby  the  will  of  the  people 
may  be  defeated. 

FINANCES. 

It  is  a subject  for  congratulation  that  we  enter 
upon  the  discharge  of  our  duties  at  .a  time  when 
business  has  begun  to  revive,  after  a depression  of 
almost  unprecedented  length  and  severity.  In  a 
community  like  this,  engaged  so  largely  in  com- 
mercial and  manufacturing  pursuits,  and  therefore 
dependent,  in  great  measure,  for  its  own  prosperity 
upon  the  prosperity  of  other  communities  with  which 
it  has  business  relations,  any  disturbance  of  the 
* money  market,  and  any  failure  of  enterprise,  or  lack 
of  thrift  on  the  part  of  others,  is  felt  with  peculiar 
force  here.  But  while  many  of  our  merchants  and 
manufacturers  have  been  crippled  in  their  resources, 
and  while  many  of  those  who  depend  upon  their 
daily  earnings  have  suffered  from  their  failure  to 
obtain  steady  employment,  it  is  a fact,  full  of  promise 
for  the  future,  that  our  industries  are  in  a condition 
to  respond  to  the  first  favorable  symptoms  of  re- 


u 


MAYOR’S  ADDRESS. 


viving  trade;  that  the  relations  between  the  em- 
ployer and  the  employed  have  been  maintained 
through  trying  times  in  a manner  creditable  to  both; 
and  that  all  the  demands  of  charity,  both  at  home 
and  abroad,  have  met  with  a cheerful  and  generous 
response. 

The  total  funded  debt  of  the  city  on  the  31st 
December,  1877,  was  |43,354,444.06.  Add  to  this 
the  loans  authorized  during  the  year,  but  not  yet 
negotiated,  amounting  to  $4,494,000,  and  we  have 
a total  of  liabilities  amounting  to  $47,848,444.06. 
The  amount  of  debt  paid  during  the  year  1877  was 
$2,355,707.52,  and  the  amount  funded  was  $652,000. 
The  sinking  funds  and  bonds  pledged  for  the  pay- 
ment of  the  debt  amount  to  $16,498,979.12.  The 
net  debt  of  the  city,  therefore,  at  the  beginning  of 
the  present  year  amounted  to  $26,855,464.94.  If  we 
compare  the  funded  debt  at  the  end  of  1876  with  the 
funded  debt  at  the  end  of  1877,  there  appears  to  be 
a decrease  during  the  year  of  $1,703,707.52;  but  if 
we  add  the  loans  authorized  by  the  last  City  Coun- 
cil, and  not  yet  negotiated,  there  is  an  actual  increase 
of  $2,790,292.48.  The  act  of  the  Legislature  to  reg- 
ulate and  limit  municipal  indebtedness,  passed  in  1875, 
provided  that  cities  and  towns  should  not  become 
indebted  to  an  amount,  — exclusive  of  loans  for  water 
supply,  — exceeding  in  the  aggregate  three  per  centum 


MAYOR’S  ADDRESS. 


15 


on  the  valuation  of  the  taxable  property  therein, 
to  be  ascertained  by  the  last  preceding  valuation 
for  the  assessment  of  taxes.  But  the  act  also  pro- 
vided, that,  when  it  took  effect,  any  city  or  town 
indebted  to  an  amount  not  less  than  two  per  centum 
on  its  valuation  might  increase  its  indebtedness  to, 
the  extent  of  an  additional  one  per  centum  on  its 
valuation.  It  appears  that  this  city  was  indebted 
more  than  two  per  centum  on  its  valuation,  May  1st, 
1875,  and  that  it  was  authorized  to  increase  its 
indebtedness  one  per  centum  on  that  amount. 

The  amount  which  the  city  may  increase  its  in- 
debtedness under  this  clause  is,  at  this  date,  $2,150,- 
618.  Had  the  debt  of  the  city  been  less  than  two 
per  centum  on  its  valuation  at  the  time  the  law  took 
effect,  the  present  indebtedness  would  be  in  excess, 
to  the  amount  of  $616,926.13,  of  the  three  per 
centum  to  which  it  would  have  been  limited.  [See 
Appendix,  p.  40.] 

There  are  a number  of  projects  for  improvement, 
some  of  them  involving  large  expense,  which  were 
reported  upon  favorably  by  committees  of  the  last 
City  Council,  and  which  will  come  before  you  as 
unfinished  business.  I have  not  examined  them 
with  sufficient  care  to  be  able  to  form  a decided 
opinion  as  to  the  necessity  or  expediency  of  carrying 
them  out.  But  in  view  of  the  heavy  expenditures 


16 


MAYOR’S  ADDRESS. 


to  which  the  city  is  already  committed,  by  the  action 
of  past  City  Governments,  in  enlarging  the  water 
supply,  improving  the  sewerage,  and  establishing 
public  parks;  in  view  of  the  enormous  debt  which 
has  been  contracted,  and  the  probable  increase  in 
the  rate  of  taxation,  necessary  to  cover  the  interest- 
account,  and  pay  the  ordinary  expenses  for  carrying 
on  the  government;  in  view  of  the  heavy  burdens 
under  which  most  of  the  tax-payers  are  now  laboring 
on  account  of  the  fall  in  prices  and  the  general 
depression  of  business,  — I deem  it  my  duty  to  say 
that  no  new  improvements,  involving  expense,  should 
be  entered  upon  during  the  present  year,  unless  it 
is  made  clear  that  further  delay  would  injuriously 
afiect  the  city’s  interests.  Undoubtedly  most  of 
these  projected  improvements,  and  others  that  will 
be  suggested  to  you  during  the  year,  would  be 
desirable,  if  our  financial  burdens  were  not  already 
so  heavy;  hut  I doubt  if  many  of  them  can  present  a 
claim  for  immediate  action  so  strong  as  to  justify 
an  addition  to  the  present  city  debt;  and  I trust  the 
clamor  of  interested  parties  in  their  behalf  will  not 
be  mistaken  for  a public  demand. 

It  is  proper,  perhaps,  that  I should  refer,  in  this 
connection,  to  one  item  of  the  city  expenditures 
which  has  excited  a great  deal  of  comment  for  a 
number  of  years,  and  which  has  had  a very  de- 


MAYOR’S  ADDRESS. 


17 


moralizing  elfect  upon  the  members  of  the  govern- 
ment. The  practice  of  eating  and  drinking,  at  the 
city’s  expense,  has  been  abused  to  such  an  extent 
that  a reform  is  imperatively  demanded.  I very 
much  doubt  whether  any  checks  which  the  City 
Council  may  endeavor  to  place  upon  its  members 
will  have  a permanent  effect;  and  I see  no  way  of 
establishing  a lasting  reform  except  by  calling  in 
the  aid  of  a legislative  enactment. 

I am  aware  that  there  are  certain  expenses  for 
refreshments  and  carriage-hire,  necessarily  incurred 
by  those  who  are  serving  the  city  without  compen- 
sation, which  may  properly  be  made  a public 
charge;  and  unless  it  is  thought  advisable  to  com- 
pensate the  Aldermen  and  Councilmen  for  their 
services,  and  disallow  all  charges  for  refreshments, 
I would  suggest  the  propriety  of  fixing,  by  statute, 
the  maximum  amount  which  the  City  Council  may 
appropriate,  annually,  for  expenses  incidental  to 
the  discharge  of  its  duties,  and  for  the  entertain- 
ment of  the  city’s  guests;  the  amount  so  appro- 
priated to  be  expended  only  under  the  direction 
and  with  the  approval  of  the  chief  executive  and 
the  presiding  officers  of  the  two  branches. 

TAXATION. 

The  extent  to  which  property  has  depreciated 


18 


MAYOirS  ADDRESS. 


during  this  hiiancial  crisis  cannot,  of  course,  be  accu- 
rately measured;  but  some  idea  of  it  may  be  gained 
from  the  statement,  that  in  the  past  three  years  the 
valuation  of  real  and  personal  property  in  this  city, 
for  the  purposes  of  taxation,  has  been  reduced  nearly 
one  hundred  and  twelve  millions  of  dollars,  although 
in  the  mean  time  many  new  buildings  have  been 
erected.  Whether  there  is  to  be  a still  further 
reduction  depends  somewhat  on  the  permanency  of 
the  improvement  now  visible  in  business  circles. 
1^0  class  of  property  has  been  more  unfavorably 
affected  during  the  past  year  than  real  estate, 
especially  unimproved  vacant  land.  Experience  has 
shown  that  this  class  of  property  is  the  last  to  be 
affected  by  a fall  in  prices,  and  that  it  recovers  more 
slowly  than  any  other  as  prices  advance.  It  appears 
that  more  than  three-fourths  of  the  entire  reduction 
in  the  assessors’  valuation  since  1873  falls  on  real 
estate  during  the  past  two  years.  This  cannot  be 
taken,  however,  as  a true  indication  of  the  fall  in 
prices,  as  the  assessors  held  to  their  old  valuations 
of  real  property  after  those  valuations  had  ceased  to 
represent  the  market  price.  In  the  city  of  ~New 
York  the  valuation  of  real  estate  was  so  low  in  the 
beginning  of  the  crisis  that  the  returns  of  the  Com- 
missioners of  Taxes  and  Assessments  show  no  fall- 
ing off  in  the  total  amount;  on  the  contrary,  there 


MAYOR’S  ADDRESS. 


19 


has  been  a small  increase,  sufficient  probably  to 
represent  the  value  of  the  additions  made  by  the 
erection  of  new  buildings.  But  while  the  ISTew 
York  valuations  have  increased,  the  rate  of  tax- 
ation has  remained  nearly  the  same,  being  $28 
on  a thousand  in  1874,  and  $26.50  in  1877.  In 
this  city,  Avhile  the  valuations  have  been  reduced, 
as  I have  said,  nearly  $112,000,000,  the  rate  of  tax- 
ation has  been  reduced  from  $15.60  on  a thousand, 
in  1874,  to  $13.10  in  1877.  It  appears  from  re- 
turns to  the  Tax  Commissioners  of  this  Common- 
wealth, that,  with  the  exception  of  the  years  1874  and 
1877,  the  rate  of  taxation  in  Boston  during  the  past 
thirteen  years  has  fallen  below  the  average  of  all  the 
rest  of  the  State.  But  this  is  more  than  offset,  un- 
doubtedly, by  the  higher  valuation  established  by  our 
assessors.  The  abatements  of  taxes  assessed  for  the 
financial  year  1877-78,  up  to  the  1st  of  December 
last,  amounted  to  $75,246.56,  or  of  one  per  cen- 
tum of  the  whole  amount  levied.  It  appears  from 
this  that  the  tax  will  be  collected  with  as  little  loss 
by  abatement  for  over-valuation  and  other  causes  as 
the  taxes  for  the  years  immediately  preceding. 
Under  the  present  law,  the  applicants  for  abatement 
of  taxes,  who  are  refused  by  the  assessors,  have  an 
appeal  to  the  Street  Commissioners.  Many  tax- 
payers complain  that  their  interests  are  not  suffi- 


20 


MAYOR’S  ADDRESS. 


ciently  protected  by  leaving  such  an  important  ques- 
tion to  be  finally  decided  by  a Board  connected  with 
the  City  Government,  and  they  propose  applying  to 
the  Legislature  during  the  present  winter  for  a 
change  in  the  law  to  enable  them  to  go  before  a 
jury^  ”or  some  other  independent  tribunal.”  The 
subject  is  one  which  should  receive  your  early 
attention. 

Much  dissatisfaction  is  felt  with  the  present  State 
laws  concerning  the  assessment  of  taxes  on  personal 
propei-ty;  but  as  they  affect  equally  the  tax-payers 
throughout  the  Commonwealth,  the  changes,  if  any 
are  needed,  may  safely  be  left  to  the  representatives 
of  the  tax-payers  in  the  General  Court. 

POLICE. 

The  condition  of  the  Police  Department  is  not 
altogether  satisfactory.  Under  the  present  system 
the  powers  of  the  Mayor,  the  Board  of  Aldermen, 
and  the  Chief  of  Police  are  not  clearly  defined. 
This  has  on  some  occasions  led  to  a conflict  of 
authority,  which  is  subversive  of  all  discipline  in  a 
department  which  depends  for  its  efficiency  on  a 
high  state  of  discipline.  The  organization  should 
be  placed  on  a more  permanent  basis.  It  cannot 
safely  be  left  to  the  changes  which  are  likely  to  fol- 
low from  the  annual  election  of  those  who  have  it 


MAYOR’S  ADDRESS. 


21 


under  control.  The  temptation  to  use  it  for  personal 
and  partisan  ends  is  so  great  that  special  safeguards 
are  needed  to  protect  it  from  sudden  changes  of 
administration. 

The  force  as  at  present  constituted  consists 
of  715  men.  In  such  a large  body  changes 
are  constantly  taking  place,  and  the  duty  of  ex- 
amining a host  of  applicants  for  vacancies  caused, 
by  death,  resignation,  or  discharge,  and  of  select- 
ing such  as  appear  to  be  qualified  for  appoint- 
ment, devolves  upon  the  Mayor.  His  time  is, 
. largely  occupied  with  petty  details,  which,  under 
the  present  management,  cannot  be  safely  left  to 
others;  and  more  important  duties  suffer  from  the 
lack  of  time  and  attention  which  he  has  to  bestow 
upon  them. 

With  the  best  intentions  on  the  part  of  the 
Committee  on  Police,  the  discipline  of  the  depart- 
ment is  often  seriously  injured  by  the  irregular 
method  in  which  complaints  against  members  of 
the  force  are  investigated.  There  is  no  settled 
policy  in  regard  to  the  punishment  for  violations 
of  the  rules.  Some  committees  are  disposed  to 
act  harshly  towards  the  officers;  others  treat  the 
gravest  offences  with  a lightness  which  invites 
repetition.  jS^either  the  citizen  who  complains  of 
the  conduct  of  an  officer,  nor  the  officer  against 


22 


MAYOR’S  ADDRESS. 


whom  the  complaint  is  made,  feels  sure  that  his 
case  will  be  examined  as  it  ought  to  be.  Those 
wdio  have  had  the  largest  experience  in  the  man- 
agement of  the  department  are  united  in  the  opinion 
that  the  present  system  is  extremely  defective. 

The  onl}^  objection  that  I have  heard  against  the 
proposition  to  place  it  under  the  control  of  a Board 
organized  in  the  same  manner  as  the  Boards  which 
now  have  charge  of  the  Health,  Fire,  and  Water 
Departments,  and  which  have  accomplished  such 
satisfactory  results,  is  that  the  duties  are  not  suf- 
ficient to  occupy  the  time  of  three  men.  The 
suggestion  which  I have  to  make  will,  I think, 
obviate  that  objection.  The  responsibility  for  the 
proj^er  execution  of  the  law  in  relation  to  the  sale 
of  intoxicating  liquors  rests,  in  great  measure,  upon 
the  whole  Police  Department;  and  it  would  un- 
doubtedly promote  the  efficiency  of  that  execution, 
if  those  who  control  the  issuing  of  the  licenses 
could  also  control  the  body  whose  duty  it  is  to  see 
that  the  terms  of  the  licenses  are  complied  with, 
and  that  persons  doing  business  without  a license 
are  prosecuted.  In  that  way  we  secure  a uniform 
and  responsible  execution  of  the  law. 

The  issuing  of  licenses  for  other  purposes,  where 
the  police  are  expected  to  exercise  some  super- 
vision over  the  place  licensed,  belongs  to  the  Police 


MAYOR’S  ADDRESS. 


23 


Department;  and  when  the  administration  of  that 
department  is  transferred  from  the  Board  of  Aider- 
men  to  another  body,  the  exercise  of  that  duty 
would  naturally  go  with  it.  There  is  no  doubt, 
therefore,  that  three  men  would  find  work  enough 
to  occupy  all  their  time;  in  the  purchase  of  the 
supplies  for  the  department  they  would  be  able  to 
save  enough  to  more  than  cover  their  own  salaries ; 
the  compensation  of  License  Commissioners  would 
be  saved;  the  Aldermen  and  the  Mayor  would  be 
relieved  of  duties  which  they  are  now  unable  to 
perform  in  a satisfactory  manner,  and  the  discipline 
and  efficiency  of  the  department  would,  in  my 
opinion,  be  greatly  increased. 

LICENSE  LAW. 

The  primary  purpose  of  a license  law  is  not  to 
secure  a revenue  to  the  government,  but  to  re- 
strain the  traffic  in  intoxicating  drinks,  and  regu- 
late it  in  the  interests  of  sobriety  and  good  order. 
How  far  that  purpose  has  been  recognized  and 
acted  upon  by  those  who  have  latterly  had  charge 
of  the  execution  of  the  law  will  appear  from  the 
statements  which  follow.  The  number  of  licenses 
issued  from  May  1,  1875,  when  the  law  went  into 
effect,  to  May  1,  1876,  was  2,372;  from  May  1,  1876, 
to  May  1,  1877,  the  number  was  1,412;  from  May  1 


24 


MAYOR’S  ADDRESS. 


to  December  31,  1877,  that  is,  eight  months,  the 
number  was  2,824.  The  returns  made  by  the 
police  of  the  number  of  liquor  saloons  in  the 
city  show  .that  in  1874,  under  the  prohibitory 
law,  there  were  3,090  places;  in  1875  there 
were  2,411;  in  1876  there  were  1,971;  in  1877  there 
were  2,362.  The  enumerations  for  these  years 
were  all  made  in  the  month  of  December.  The 
arrests  for  drunkenness  during  the  same  period 
have  been  as  follows:  For  1874,  11,8.92;  for  1875, 
10,325;  for  1876,  8,561;  for  1877,  8,213.  From 
•June  21,  1875  (when  the  execution  of  the  license 
law  was  entered  upon  in  this  city),  to  December 
31,  1875,  the  number  of  prosecutions  made  by  the 
police  department  for  violations  of  the  law  was 
1,121;  for  the  year  1876  the  number  of  prosecu- 
tions was  4,028;  and  the  number  of  gallons  of 
liquor  seized,  under  the  provisions  of  a supple- 
mentary act  of  the  Legislature,  passed  that  year, 
was  32,654,  most  of  which  was  confiscated.  The 
number  of  prosecutions  for  keeping  and  selling 
without  a license,  from  January  1 to  May  29, 
1877,  was  803. 

On  the  29th  of  May  last  the  maximum  num- 
ber of  the  police  force  was  increased  by  the 
addition  of  15  men,  and  that  number  was  de- 
tailed to  act  solely  under  the  control  and  direc- 


MAYOR’S  ADDRESS. 


25 


tion  of  the  License  Commissioners.  It  was  so 
well  understood  that  the  other  members  of  the 
force  were  not  to  take  cognizance  of  violations 
of  the  law,  that  from  that  date  until  the  present 
time  but  22  prosecutions  have  been  made  through 
the  Police  Department,  and  those  were  of  cases 
so  notorious  that  they  could  not  well  be  over- 
looked. The  whole  number  of  complaints  for 

violations  of  the  law  instituted  by  the  commis- 
sioners between  the  29th  of  May,  1877,  and  the 
4th  of  January,  1878,  was  353;  and  the  number 
of  seizures  during  that  period  was  179. 

Of  the  duty  and  responsibility  of  the  police 
in  the  execution  of  that  law  I have  already 
spoken.  If  the  law  is  executed  in  a just  and 
impartial  manner,  and  with  a view  to  the  pur- 
pose for  which  it  is  enacted,  I believe  it  will 
produce  better  results,  especially  in  the  large 
cities,  than  any  other  system  yet  devised. 

THE  HEALTH  DEPxiRTMENT. 

Since  the  establishment  of  the  Board  of  Health, 
in  1873,  the  sanitary  condition  of  the  city  has 
steadily  improved,  and  it  now  stands  higher  than 
ever  before.  There  has  been  no  epidemic  to  dis- 
turb trade  or  alarm  the  people  during  the  last 
four  years.  The  death-rate  has  gradually  de- 


26 


MAYOR’S  ADDRESS. 


creased  from  32.76  in  a thousand  in  1872  to 
23.39  in  a thousand  in  1876,  and  20  in  a thou- 
sand in  1877. 

This  exhibit  testiiies  to  the  fidelity  with  which 
the  Board  has  performed  the  important  duties 
intrusted  to  it.  An  encouraging  feature  is  ob- 
served in  the  diminishing  death-rate  among  small 
children  during  the  summer  months.  In  1875 
the  number  of  deaths  among  children  five  years 
of  age  and  under  during  the  months  of  June, 
July,  August,  and  September  was  1,848;  in  1877, 
with  a larger  population,  the  number  was  re- 
duced to  1,365. 

Special  efibrts  have  been  made  during  the  past 
year  to  prevent  the  spread  of  scarlet  fever,  and 
those  efforts  have  been  attended  with  the  most 
gratifying  results.  For  the  five  years  precediug 
1877  the  average  number  of  deaths  from  this 
cause  was  397 ; for  the  six  months  ending  Dec. 
31,  1877,  there  were  only  21  deaths.  The  deaths 
from  small-pox,  including  those  which  occurred 
in  quarantine,  have  numbered  only  11  in  four 
years,  and  5 of  that  number  occurred  last  sea- 
son, when  the  Board  of  Health  was  without  a 
hospital  on  the  main  land  and  the  conveniences 
necessary  to  isolate  the  first  cases.  Two  new 
hospitals  for  contagious  diseases  have  been  erected 


MAYOR’S  ADDRESS. 


27 


during  the  past  year,  one  at  Gallop’s  Island  for 
fever  patients,  and  one  in  West  Roxbnry  for 
small-pox. 

The  quarantine  regulations  have,  I believe,  been 
carefully  administered  with  reference  to  the  in- 
terests of  commerce  and  the  health  of  the  city; 
and,  with  one  exception,  no  vessel  has  been  de- 
tained more  than  twenty-four  hours,  and  then 
only  for  the  removal  of  the  sick  and  the  puri- 
fying of  the  vessel. 

The  matters  which  now  specially  claim  the  at- 
tention of  the  Board  are  the  condition  of  the 
sewerage  and  flats  on  the  Back  Bay,  the  Charles- 
toAvn  flats  near  Canal  street,  and  the  unhealthy 
deposits  in  the  Roxbury  Canal. 


WATER  SUPPLY. 

The  net  cost  of  the  Cochituate  Water  Works,  ' 
to  Jan.  1st,  1878,  amounted  to  $16,356,282.04;  and 
the  net  income  for  the  year  1877  amounted  to 
$54,131.52.  The  amount  of  bonds  outstanding  on 
account  of  the  Mystic  Water  Works  is  $1,023,000; 
and  the  net  income  from  those  works  for  the  year 
1877  amounted  to  $73,655.10.  A detailed  statement 
is  appended.  The  expenditures  for  an  additional 
supply  of  water  amount,  at  this  date,  to  $4,050,- 


28 


MAYOR’S  ADDRESS. 


297.62.  It  is  believed  that  the  estimates  of  the  whole 
cost,  made  at  the  beginning  of  last  year,  namely, 
$4,650,000,  exclusive  of  water  damages  and  of 
interest  paid  during  construction,  will  not  be 
exceeded.  The  conduit  from  Farm  Pond  in  Fra- 
mingham to  Chestnut  Hill  is  practically  completed; 
and  the  smaller  conduit  from  Sudbury  river  to  Farm 
Pond  will  be  finished  probably  in  July  next.  The 
foundations  of  the  dams  for  the  three  storage  basins 
are  completed,  and  the  w^ork  on  the  superstructure  is 
being  energetically  prosecuted. 

A large  proportion  of  the  claims  for  land  damages 
have  already  been  settled,  and  it  is  believed  that 
the  unsettled  claims  will  be  adjusted  without  great 
expense  or  difficulty.  The  claims  for  damages 
occasioned  by  the  taking  of  the  waters  of  the 
rivers  have  been  considered  by  a commission  ap- 
pointed by  the  Superior  Court  of  the  Common- 
wealth, and  awards,  amounting  in  the  aggregate 
to  $438,500,  have  been  made.  From  the  de- 
cision of  the  commissioners,  however,  the  Water 
Board,  acting  under  advice  of  counsel,  have  ap- 
pealed, the  estimated  damages  being  considered 
excessive. 

The  completion  of  the  new  supply  works  will  re- 
quire another  season,  but  the  conduit  is  already  in 
order  to  supplement  the  supply  from  Lake  Cochit- 


MAYOR’S  ADDRESS. 


29 


uate,  and  to  be  used  in  case  of  accident  to  the  old 
conduit. 

Work  on  the  Mystic  Yalley  Sewer  was  begun  on 
the  20th  of  August  last.  The  main  sewer  to  'Win- 
chester is  completed,  and  the  Russell-brook  branch 
leading  to  "Woburn  is  well  under  way.  It  will  prob- 
ably require  about  two  months’  work  in  the  spring  to 
make  the  sewer  ready  for  use.  The  estimated  ex- 
pense of  this  work  is  $205,000. 

IMPROVED  SEWERAGE. 

The  intercepting  sewerage  system,  for  which  an 
appropriation  was  made  last  summer,  and  on  which 
work  has  already  begun,  originated  in  the  conviction 
of  our  citizens  that  some  better  method  was  needed 
than  already  existed  for  the  removal  of  the  city’s 
sewage.  This  conviction  found  expression  in  the 
yearly  reports  of  the  State  and  City  Boards  of 
Health  (1870-1870),  and  in  communications  from 
leading  physicians.  In  1875  a commission  of  emi- 
nent engineers  was  appointed,  who  in  the  following 
year  recommended  the  adoption  of  a plan,  in  its  main 
features  similar  to  what  has,  after  the  most  ex- 
haustive investigation,  been  adopted  by  all  large 
foreign  cities  similarly  situated. 

The  recommendation  was  adopted  by  the  City 
Government,  and  another  year  was  consumed  in 


30 


MAYOR’S  ADDRESS. 


examinations  conducted  by  the  City  Engineer  as  to 
the  best  mode  of  carrying  out  the  general  plan  pre- 
pared by  the  commission.  Finally,  in  August,  1877, 
the  City  Council  made  an  appropriation  of  $3,713,000 
to  carry  out  the  scheme  substantially  as  recom- 
mended, and  work  was  begun  at  once.  This  scheme 
involves  the  construction  of  some  thirteen  miles  of 
intercepting  sewers,  a pumping-station  and  pumps,  a 
reservoir,  embankments,  and  a tunnel.  Of  the  inter- 
cepting sewers  a mile  and  a half  are  now  under 
contract  and  one-third  of  a mile  is  already  com- 
pleted. 

While  it  is  not  claimed  that  the  completion  of  this 
work  will,  furnish  a perfect  system  of  sewerage 
since  the  ordinary  drains  and  sewers  are  to  some  ex- 
tent defective  in  construction  and  arrangement,  yet  it 
seems  to  be  the  first  and  most  important  step  in  that 
direction,  afibrding,  as  it  will  an  outlet  into  which  the 
existing  sewers  can  at  all  times  freely  discharge,  and 
without  which  it  would  be  almost  useless  to  attempt  to 
improve  them.  Fears  have  been  expressed  that 
damages  may  be  caused  on  the  new-made  lands  of 
the  Back  Bay  and  elsewhere,  by  a lowering  of  the 
soil  water.  This  subject  is  now  being  investigated 
l^y  the  engineers,  and  nothing  will  be  done  hastily 
or  without  sufficient  assurance  that  the  anticipated 
danger  is  groundless  or  can  be  obviated. 


MAYOR’S  ADDRESS. 


31 


PUBLIC  GROUNDS. 

By  an  order  of  the  City  Council  passed  in  July 
last,  the  Park  Commissioners  were  authorized  to 
purchase,  at  a cost  not  exceeding  10  cents  per 
square  foot,  about  100  acres  of  lands  and  flats 
on  that  portion  of  the  Back  Bay  lying  west  of 
Parker  street.  The  commissioners  have  just  com- 
pleted the  purchase  of  about  60  acres,  and  have 
bonded  all  but  a few  thousand  feet  of  the  remaining 
portion.  The  details  of  their  action  will  be  found  in 
a report  made  up  at  the  close  of  the  year,  and  just 
printed. 

I am  informed  by  the  commissioners  that  a plan 
for  the  improvement  of  the  park,  with  estimates 
of  cost,  will  be  submitted  to  the  City  Council  as 
soon  as  prepared ; and  I recommend  that  an  appro- 
priation be  made  to  enable  them  to  proceed  with 
the  work.  Steps  should  be  taken  without  delay 
to  petition  the  Legislature  to  cede  to  the  city  a 
strip  of  flats  on  Charles  river,  as  described  in  the 
commissioners’  report  of  1876,  and  known  as  the 
Charles-river  Embankment.  The  improvement  of 
these  flats  for  pleasure-grounds  may  properly  be 
delayed  for  some  years;  but  it  is  highly  important 
that  the  city  should  obtain  possession  of  them  at  an 
early  day,  for  sanitary  reasons,  and  for  the  purpose 


32 


MAYOR’S  ADDRESS. 


of  locating  thereon  the  intercepting  sewer.  The 
strip  of  land  bordering  on  Charles  river  between 
Leverett  and  Cambridge  streets,  being  a part  of  the 
proposed  Embankment,  should  be  secured  and  put  in 
order  for  use  as  a breathing  space  for  the  crowded 
population  of  that  neighborhood. 

The  care  of  the  Common  and  other  public  grounds 
of  the  city  has  been  the  subject  of  much  unfavorable 
comment  during  the  past  year,  and  a committee 
appointed  to  investigate  the  expenditures  in  that 
department  suggested  the  propriety  of  placing  all 
the  public  pleasure-grounds  under  the  Board  of 
Park  Commissioners.  I commend  the  suggestion  to 
your  consideration. 

PUBLIC  SCHOOLS. 

From  the  last  school  report  it  appears  that  the 
whole  number  of  children  in  the  city,  between  5 
and  15  years  of  age,  as  ascertained  by  the  school 
census  in  May  last,  was  58,034;  and  the  average 
whole  number  of  pupils  belonging  to  day  and  even- 
ing schools  of  all  grades,  during  the  school  year^ 
ending  on  the  31st  of  August  last,  was  50,567.  To 
instruct  these  pupils,  there  were  employed  1,256 
teachers.  The  schools  supported  by  municipal  tax- 
ation were  1 normal  school,  8 high  schools,  49 
grammar  schools,  404  primary  schools,  2 schools  for 


MAYOR’S  ADDRESS. 


33 


licensed  minors,  1 school  for  deaf-mntes,  1 high 
and  16  elementary  evening  schools,  5 evening  draw- 
ing schools,  and  1 Kindergarten  school.  The  total 
expenditures  for  all  school  purposes,  during  the 
financial  year  ending  on  the  30th  of  April  last,  were 
$1,816,615.49;  this  amount  being  made  up  of  $1,211, - 
796.67  for  teachers’  salaries,  $467,957.52  for  inciden- 
tal expenses,  and  $136,861.30  for  school-houses  and 
lots.  It  appears  that  the  total  amount  of  expendi- 
' tnres  was  $198,765.35  less  than  that  of  the  preceding 
year.  This  decrease  was  due  in  part  to  the  consoli- 
dation of  schools,  and  the  consequent  reduction  of 
the  number  of  teachers  employed,  but  chiefiy  to  the 
reduction  in  the  amount  expended  for  permanent 
improvements  in  school  accommodations.  At  the 
beginning  of  the  present  school  year  the  committee 
made  a reduction  in  the  salaries  of  teachers  of  about 
seven  and  a half  per  cent.,  which  will  effect  a saving 
of  about  $100,000.  During  the  past  20  or  30  years 
the  city  has  made  very  liberal  appropriations  for 
school-houses  and  lots,  and  our  school  accommo- 
dations are  now  in  the  main  excellent,  and  the 
number  of  seats  j)rovided  is  largely  in  excess  of 
the  number  of  pupils.  It  is  therefore  confidently 
expected  that  but  limited  appropriations  for  this 
purpose  will  he  called  for  during  the  present  year. 
By  the  reorganization  of  the  School  Board  which 


34 


MAYOR’S  ADDRESS. 


took  place  two  years  ago,  and  the  creation  at  the 
same  time  of  a new  instrumentality,  consisting  of  a 
Board  of  Supervisors,  a radical  change  was  made 
in  the  system  of  school  administration.  The  new 
system  is  believed  to  be,  in  several  important  respects, 
an  improvement  on  that  which  it  replaced.  If  it  has 
not  accomplished  all  that  the  most  sanguine  advo- 
cates of  the  reform  expected,  it  has  at  least  made  a 
good  beginning.  Some  of  its  plans  have  been  neces- 
sarily tentative  and  experimental,  and  probably  will 
be  found  to  need  modification.  Substantial  im- 
provements in  a great  and  complicated  system  of 
education  are  not  easily  brought  about.  In  the  man- 
agement of  this  business  the  aim  should  be  to  secure 
to  every  child  the  education  best  suited  to  his  future 
vocation,  without  any  unnecessary  expenditure  of 
means.  The  measure  of  success  attained  in  the  ac- 
complishment of  this  object  must  be  determined  by 
the  integrity  and  ability  of  the  persons  chosen  by  the 
suffrages  of  the  people  to  be  members  of  the  School 
Board. 

In  May  last  the  City  Council  made  an  appropria- 
tion of  $350,000  for  the  erection  of  a building  for  the 
English  High  and  Latin  schools  on  the  lot  of  land  on 
Warren  avenue  and  Montgomery  streets,  purchased 
for  the  purpose  in  1872.  The  foundations  have  been 
prepared  and  work  on  the  superstructure  will  be 


MAYOR’S  ADDRESS. 


35 


entered  upon  in  the  spring.  The  appropriation  is 
intended  to  cover  only  the  cost  of  erecting  the  build- 
ing; and  an  additional  sum  will  be  required  for  fur- 
niture and  apparatus. 

PUBLIC  LIBRARY. 

The  Public  Library  now  comprises  the  largest 
collection  of  books  in  America,  and  is  second  to  no 
other  in  importance  and  usefulness.  During  the 
past  year  a new  branch  has  been  established  at 
Jamaica  Plain,  and  also  at  the  South  End.  The 
institution  is  at  present  without  a permanent  super- 
intendent, as  the  trustees  have  not  yet  been  able  to 
find  a successor  to  Mr.  Winsor,  competent  to  fill  the 
very  unusual  requirements  of  the  office. 

In  view  of  the  great  value  of  the  library,  and  the 
expected  accession  of  further  trusts  for  its  benefit,  it 
is  a question  for  the  consideration  of  the  City  Gov- 
ernment, whether,  for  the  purpose  of  placing  the 
institution  on  a more  permanent  and  responsible  basis, 
the  trustees  should  not  be  incorporated  under  the 
laws  of  the  State,  as  the  School  Committee  and  the 
Overseers  of  the  Poor  are  now  incorporated,  for  the 
management  of  trust  funds  which  have  been,  or 
which  may  be,  placed  under  their  control.  If  this 
were  done,  and  the  organization  of  the  Board  of 
Trustees  changed  so  as  to  prevent  the  possibility  of 


36 


MAYOK’S  ADDKESS. 


electing  a majority  of  new  members  every  year, 
there  is  no  doubt  that  the  number  of  benefactors  to 
the  library  would  be  increased. 

On  one  other  point  there  is  need  for  action  when- 
ever the  financial  condition  of  the  city  will  permit. 
Year  by  year  the  necessity  for  more  room,  especially 
in  the  popular  department,  becomes  more  pressing. 
This  accommodation  can  be  obtained  either  by  build- 
ing upon  the  estate  purchased  for  this  object  in  1872, 
or  by  devoting  some  other  public  building  to  the 
uses  of  the  popular  library  and  the  reading-room. 
There  seems  to  be  no  reasonable  doubt  that  proper 
convenience  of  access  to  the  crowds  which  frequent 
the  lower  halls  of  the  building  would  result  in  largely 
increased  usefulness. 

PUBLIC  IJs^STITUTIONS. 

The  Public  Institutions  of  the  city,  including 
under  that  head  the  House  of  Correction,  the  House 
of  Industry,  the  House  of  Reformation,  the  Lunatic 
Hospital,  the  Almshouses,  and  the  receptacles  for 
neglected  and  truant  children,  appear  to  be  well 
and  economically  managed  by  the  Board  having 
charge  of  them.  Several  additions  have  been  made 
during  the  past  year;  the  most  important  being  the 
Austin  Farm  Home,  for  poor  women,  and  the 
Marcella-street  Home,  for  poor  and  neglected  boys. 


M A Y 0 ir  S A D DRESS. 


37 


The  whole  number  of  persons  remaining  in  the 
several  institutions  at  the  end  of  the  year  was 
2,791,  — an  increase  of  111  over  the  corresponding 
date  of  the  year  before.  Although  some  of  the 
departments  are  full,  the  Directors  do  not,  I be- 
lieve, contemplate  any  extensive  enlargement  of  the 
present  accommodations  during  this  year.  Arrange- 
ments are  being  made  to  furnish  work  for  all  the 
able-bodied  men  sent  to  Deer  Island  and  Rainsford 
Island,  with  a view  to  reducing  the  number  who 
now  go  there  for  the  purpose  of  securing  an  easy 
and  comfortable  place  during  the  winter  months. 

The  Lunatic  Hospital  is  lacking  in  all  the  modern 
conveniences  for  the  care  of  the  insane,  and  ought 
not  to  be  maintained  by  the  city  when  suitable 
accommodations  have  been  prepared  by  the  State. 
The  new  State  Asylum,  at  Danvers,  will  be  opened 
iu  the  spring,  and,  if  the  purpose  for  which  it  was 
erected  is  carried  out,  the  inmates  of  the  city  insti- 
tution will  be  transferred  to  it. 

OVERSEERS  OF  THE  POOR. 

The  difficult  and  delicate  duty  of  furnishing 
what  is  knoAvn  as  ” out-door  relief”  to  the  poor 
devolves  upon  the  Overseers  of  the  Poor,  who  exe- 
cute their  trust  in  a manner  which  has  elicited 
high  commendation,  both  at  home  and  abroad,  from 


38 


MAYOR’S  ADDRESS. 


those  who  have  had  a practical  experience  in  the 
administration  of  similar  departments.  The  sys- 
tem which  they  have  instituted,  of  visiting  appli- 
cants at  their  lodgings,  detects  frauds,  and  at  the 
same  time  affords  an  opportunity  of  learning  the 
circumstances  of  those  most  deserving.  The  labor 
test  which  has  been  applied  to  the  wandering 
applicants  for  food  and  lodging  has  been  attended 
with  success. 

The  new  law  of  settlement  enacted  by  the  Legis- 
lature in  1874  has  had  the  effect  to  diminish  the 
number  of  State  paupers,  and  throw  them  on  the 
cities  and  town,  thus  adding  considerably  to  the 
pecuniary  burdens  of  this  city.  It  is  not  expected 
by  those  who  have  charge  of  this  department  that 
there  will  be  any  large  increase,  during  the  present 
winter,  in  the  number  of  those  requiring  assistance. 
In  the  latter  part  of  1876  a commission  was  ap- 
pointed, under  the  authority  of  the  City  Council, 
to  investigate  our  system  of  caring  for  the  poor  in 
and  out  of  the  almshouses.  Their  report  will,  I 
understand,  soon  be  submitted  for  your  considera- 
tion. 

I have  thus  stated  to  you  briefly,  and,  as  I am 
aware,  somewhat  imperfectly,  the  present  condition 
of*  the  city,  and  have  made  some  suggestions  as 


MAYOR’S  ADI)RP:SS. 


39 


to  changes  and  improvements  where,  in  my  opinion, 
the  good  government  of  the  city  wonld  thereby  be 
promoted.  There  are  other  matters,  equally  im- 
portant, pei’haps,  with  those  I have  mentioned,  which 
will  probably  claim  your  attention  during  the  year, 
and  I may  take  occasion  hereafter  to  communicate 
my  views  concerning  them  in  a special  message. 


MAYOR’S  ADDRESS. 


41 


APPENDIX. 


City  Debt  Statement. 

The  following  is  an  exhibit  of  the  total  debt  of  the  city, 
December  31,  1877,  compared  with  the  debt  of  the  city  at 
the  close  of  the  year  1876  : — 

Dec.  31,  1877.  Dec.  31,  1876. 

Amount  of  debt  . , . , $43,354,444  OG  > $45,058,151  58 


Decrease  during  the  year  1877,  $1,703,707.52. 

The  above  amount  of  $43,354,444.06  represents  the  total 
funded  debt,  Dec.  31,  1877  ; to  this  should  be  added  the 
following  loans  and  parts  of  loans  authorized  by  the  City 
Council  of  1877,  not  yet  negotiated,  but  to  be  negotiated  as 
soon  as  the  necessity  of  the  case  requires,  viz.  : — 


Order,  May  25,  1877,  English  High  and  Latin  School-house 
balance  .......... 

Aug.  9,  1877,  Improved  Sewerage  balance  .... 

Dec.  22,  1877,  Stony  Brook  Sewer  ..... 

Dec.  31,  1877,  Widening  Commercial  street  . . , 


$310,000  00 
3,551,000  00 

133.000  00 

500.000  00 


$4,494,000  00 


Funded  debt  .... 
Loans  authorized,  but  not  negotiated 


$43,354,444  06 
4,494,000  00 


Total  debt  liabilities 


$47,848,444  06 


Debt  paid  during  the  year  1877,  and  certificates  cancelled, 
$2,355,707.52.  Debt  funded  during  the  year  1877,  $652,000. 

The  means  on  hand  Dec.  31,  1877,  for  the  payment  of 
the  funded  delit  of  $43,354,444.06,  compared  with  those 
of  1876,  were  as  follows  : — 


42 


MAYOR’S  ADDRESS. 


Funds  in  the  hands  of  the  Sinking  Fund 
Commissioners  .... 
Public  land,  and  other  bonds,  pledged  for 
the  payment  of  the  debt  . 


Dec.  31,  1877. 


$15,921,370  44 
577,602  08 


Dec.  31,1876. 
.$15,782,990  93 
898,792  41 


$10,498,979  12  $10,081,789  34 


Decrease  of  means  during  the  municipal  year  1877, 
$182,810.22. 

The  funded  del)t,  Deo.  31,  1877,  was $43,354,444  06 

The  means  on  hand  for  the  payment  of  the  same,  Dec.  31, 

1877,  were  .........  10,498,979  12 

Debt,  less  means  for  paying,  Dec.  31,  1877  ....  $20,855,404  94 


The  debt  of  the  city,  Dec.  31,  1876,  was,  less  the  means 
for  paying  the  same,  $28,376,362.24,  which,  compared  with 
that  of  Dec.  31,  1877,  as  above,  shows  a decrease  of  debt, 
less  means  for  paying  the  same  during  the  year  1877, 
amounting  to  $1,520,897.30. 

The  funded  debt  is  classified  by  the  Auditor  of  Accounts, 
as  follows  : — 


City  debt  j)roper  . 

’ Cochituate  water  debt 
AVar  loans  (outstanding) 

Roxhury  debt  (outstanding) 
Dorchester  debt  (outstanding) 
Cliarlestown  debt  ( outstanding) 
Mystic  water  del)t  (outstanding) 
West  Roxhury  debt  (outstanding) 
Brighton  debt  (outstanding) 


The  outstanding  loans  of  all  kinds  amount 
to  ..•••••  • 

Less  Water  loans,  as  follows  : — 

('’ochituate  water  loans  .... 
Mystic  Water  loans  ..... 


Dec.  31,  187 

7. 

Dec  31,  1876. 

$23,050,255 

99 

$25,481,389 

06 

15,137,097 

47 

14,121,521 

92 

1,711,500 

00 

1.794,500 

00 

393,450 

00 

423,000 

00 

104,500 

00 

109,500 

00 

1,000,000 

00 

1,195.000 

00 

1,228.000 

00 

1,249,000 

00 

430,000 

00 

450,000 

00 

233,040 

00 

233,040 

60 

$43,354,444 

00 

$45,058,151 

58 

$43,354,444 

00 

$11,545,273 

98 

1,228,000 

00 

— 

12,773,273 

98 

landing  for 

all 

$30,581,170 

08 

,273  98.  The  above 

is  the  cost  of 

the 

works. 


MAYOR’S  ADDRESS. 


43 


The  means  on  hand  for  paying  the  Water  Loans  are  : 
sinking  funds,  $2,067,195.49;  bond  for  sale  of  land,  with 
Collector,  $2,702;  total,  $2,069,897.49.  The  means  for 
paying  the  $30,581,170.08,  are:  sinking  funds,  $13,854,- 
180.95  ; bonds  for  sales  of  land,  etc.,  with  Collector,  $574,- 
900.68;  total,  $14,429,081.63. 

Tlie  amount  which  the  City  of  Boston  may  Increase 
its  indebtedness  under  the  one  per  cent,  clause  of  the 
act  " to  regulate  and  limit  municipal  indebtedness  ” is  at 
this  date  $2,150,618. 

If  the  three  per  cent,  clause  of  the  act  was  applicable,  it 
would  stand  thus  : — 


Total  funded  debt,  December  31,  1877  .....  $43,354,444  06 

Less  water  loans 12,773,273  98 


$30,581,170  08 

To  which  add  loans  authorized  by  City  Council  of  1877,  not 

negotiated,  none  of  A^dlich  pertain  to  Water  Works  . $4,494,000  00 


We  have  a total  of  debt  liabilities  amounting  to  . . . $35,075,170  08 


The  total  sinking  fund  for  the  redemption  of  the  debt, 

December  31,  1877,  was  . . . . . . $15,921,376  44 

Less  water  sinking  funds  .......  2,067,195  49 


Total  applicable  to  payment  of  debt,  exclusive  of  Water 

Works  debt  .........  $13,854,180  95 


Total  indebtedness,  exclusive  of  water  debt  as  above  . 

Less  sinking  funds  applicable  to  its  redemption  as  above 

Leaving  the  total  debt,  exclusive  of  the  Water  Works  debt, 
less  the  sinking  funds  for  its  redemption 


$35,075,170  08 
13,854,180  95 


$21,220,989  13 


Total  debt,  7ess  water  debt  and  sinking  funds  as  above  . . $21,220,989  13 

The  amount  of  debt  which  the  City  of  Boston  can  issue 
under  the  3 per  cent,  clause,  exclusive  of  that  for 
Water  Works  and  sinking  funds,  under  the  valuation  of 
the  city.  May  1,  1877  ($686,802,100)  ....  $20,604,063  00 

Excess  of  indebtedness  under  the  3 per  cent,  clause  . . $616,926  13 


44 


MAYOR’S  ADDRESS. 


COCIIITUATE  WATER  WORKS. 

Statement  Jan.  1,  1878. 

Net  cost  of  works,  April  30,  1877  .....  $15,105,507  9 

Gross  payments  from  May  1,  1877,  to  Jan- 
uary 1,  1878  (including  interest  and  pre- 
mium)   $1,479,868  17 

Total  income  from  May  1,  1877,  to  January 

1,  1878  289,094  05 

1,190,774  12 


Net  cost  January  1,  1878 


$10,.350,282  04 


Total  receipts  for  water  from  January  1, 
1877,  to  January  1,  1878  . . . . 

Receipts  by  Water  Board  . . , . 

Interest  paid  during  the  year  1877 
Current  expenses  . , . , . 


$1,019,223  89 
03,727  70 

$789,926  97 
193,845  59 


$1,082,951  65 
983,772  56 


Less  amount  paid  Mystic  Water  Department  for  water  fur- 
nished East  Boston  during  the  year  1877  .... 


$99,179  09 
45,047  57 


Net  income  for  year  1877  $54,131  52 

Number  of  water-takers,  49,615. 


MYSTIC  WATER  WORKS. 

Auiount  of  bonds  outstanding  April  30,  1877  . , . $1,023,000  00 


Amount  of  water-rates  collected  from  January  1,  1877,  to 
January  1,  1878  . , $244,239  05 


Charlestown  District 
East  Boston,  net  . 
Chelsea,  net 
Somerville,  net 
Everett,  net 


$111,073  10 
47,410  16 
40,264  32 
39,602  12 
5,889  35 


Interest  paid  during  the  year  1877  . . $64,925  00 

Maintenance  account  from  January  1,  1877, 

to  January  1,  1878  .....  105,658  95 


$244,239  05 


170,583  95 
$73,655  10 


MYSTIC  VALLEY  SEWER. 

Amount  of  bonds  outstanding,  April  30,  1877  . . , $205,000  00 

Amount  expended  to  January  1,  1878  .....  73,240  74 


T H E 


INAUGURAL  ADDRESS 


FREDERICK  0.  PRINCE, 


M A Y O R OF  BOS  T O N , 


THE  CITY  COUNCIL, 


JANUARY  6,  1879. 


BOSTON: 

ROCKWELL  AND  CHURCHILL,  CITY  PRINTERS 

3 9 A R C H S T R PI  E T . 

1 8 7 9. 


T n E 


INAUGURAL  ADDRESS 

OF 

FREDERICK  0.  PRINCE, 

MAYOR  OF  BOSTON, 


THE  CITY  COUNCIL, 

JANUARY  G,  1871). 


P>  O S T O X : 

KOCKWELL  AND  C II  UR  CHILL,  C I T PRINTERS, 
3 9 A R C II  S 1’  R P:  E 'P  . 


1 S 7 i) 
If 


CITY  OF  BOSTOY. 


In  Common  Council,  January  6,  1879. 

Ordered,  That  his  Honor  the  Mayor  be  requested  to  fur- 
nish a copy  of  his  address,  that  the  same  may  be  printed: 
Sent  up  for  concurrence. 

WM.  II.  WHITMOKE, 

President. 


In  Board  of  Aldermen,  January  13,  1879. 
Concurred. 


HUGH  O’BRIEN,  Chairman. 


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1., 


ADDRESS. 


Gentlemen  of  the  City  Council  : — Our 
muuicdpal  charter  directs  the  Mayor  from  time  to 
time  to  communicate  to  both  brauclies  of  the  City 
Council  all  such  information,  and  recommend  all 
such  measures,  as  may  tend  to  the  improvement 
of  the  finances,  the  police,  health,  security,  cleanli- 
ness, comfort,  and  ornament  of  the  city.” 

It  has  been  customary  for  him  to  make  such  com- 
munications on  his  inauguration.  Before  proceeding 
to  the  discharge  of  this  duty  I propose  to  say  a few 
words  — after  the  example  of  my  immediate  pre- 
decessor — touching  the  election  which  has  placed 
the  government  of  the  city  in  your  hands  for  the 
ensuing  year. 

I need  not  remind  you  that  the  elections  of  both 
1877  and  1878  were  characterized  by  certain  features 
which  made  them  most  remarkable.  The  issue  upon 
which  they  were  conducted  were  party  issues.  By 
means  and  instrumentalities,  which  it  is  to  be 
hoped  for  the  good  name  and  credit  of  the  city  will 
not  again  be  adopted,  the  most  vindictive  spirit 


6 


M A Y O R ’ S ■ A I ) DRESS. 


was  infused  into  the  contest,  and  the  canvass  was 
marked  by  personalities  wholly  foreign  to  the  taste, 
culture,  respectability,  and  dignity  of  the  city  of 
Boston. 

AVhen  an  administration  solicits  the  votes  of  the 
citizens  at  a municipal  election  for  retention  in  of- 
fice, the  questions  to  be  asked  should  be  these : Has 
it  honestly  and  faithfully  discharged  the  trusts  re- 
posed in  it  by  the  people  so  as  to  meet  their  just 
expectations?  Have  its  measures  promoted  their 
municipal  interests?  Have  the  finances  been  eco- 
nomically managed?  Has  the  health  of  the  city 
been  properly  cared  for?  In  short,  has  the  admin- 
istration done  its  duty? 

But  the  election  which  placed  my  predecessor  in 
office  did  not  turn  on  these  issues.  The  voters 
were  not  asked  to  say  whether  the  government 
they  proposed  to  expel  from  office  had  satisfactorily 
conducted  civic  affairs.  The  issue  — says  my  pre- 
decessor in  his  inaugural  — was  the  establishment 
of  the  ” spoils  system  ” — ” that  is,  appointment  to 
office  as  a reward  for  party  service.’’ 

“ ’Tis  true,  ’tis  j^ity  ; 

And  pity  ’tis  ’tis  true.” 

But  all  interested  in  good  government  and  in  the 
welfare  of  our  municipality  must  regret  that  so 


A Y OK’S  ADDRESS. 


important  an  election  as  that  of  a city  government 
for  Boston  should  turn  on  such  an  issue,  and  that 
the  ballots  of  onr  citizens  did  not  rather  express 
their  judgment  on  the  many  grave  measures  of  the 
previous  administration  touching  the  public  health 
and  prosperity. 

The  issue  in  the  last  election  is  not  to  be  mis- 
taken. Everywhere,  not  only  here  in  the  city  of 
Boston,  but  throughout  the  country,  the  people  be- 
lieve that  the  expenses  of  government  are  much  too 
great,  and  should  be  reduced.  By  reason  of  the  long- 
continued  depression  in  every  branch  of  business, 
and  the  exemption  from  assessment  of  so  much  of 
the  capital  of  the  country,  taxation  presses  heavily 
upon  all  classes,  not  only  upon  property  holders,  — 
the  direct  taxpayers,  — but  upon  the  great  body  of 
the  people,  those  who  contribute  to  the  support 
of  government  by  the  payment  of  indirect  taxes. 

This  demand  for  retrenchment  in  expenses  has 
entered  into  all  our  recent  elections,  town,  city, 
state,  and  federal.  It  was  heard  with  ominous 
emphasis  in  our  recent  gubernatorial  election.  It 
was  heard  most  unmistakably  at  the  municipal 
election.  Both  parties  promised  to  heed  and  obey 
it.  Honesty,  good  faith,  urban  credit,  and  the 
welfare  and  future  growth  of  the  city,  all  demand 
that  we  should  redeem  our  promise.  W e entered 


8 


M A Y O K ’ S A D I)  R E S S . 


into  a contract  with  onr  constituents,  that  in  con- 
sideration of  their  votes  we  would  accomplish  the 
reforms  and  effect  the  retrenchment  which  they 
demanded.  If  we  fail  to  keep  this  contract,  if  we 
are  recreant  to  our  official  trusts,  we  shall  be  con- 
denuied  at  the  next  election  as  unfaithful  stewards. 

The  citizens  will  expect  that  you  will  do  all 
that  the  health,  comfort,  dignity,  and  best  inter- 
ests of  Boston  require ; beyond  this  we  must 
not  go.  But  I think  it  our  duty  to  postpone  the 
accomplishment  of  some  of  the  measures  which 
have  been  conceded  to  be  almost  necessary,  cer- 
tainly very  desirable,  for  the  public  convenience, — 
- measures  which  must  be  adopted  in  the  future, 
until  reviving  business  and  its  returning  profits 
shall  make  their  cost  a lighter  burden  to  the  tax- 
payers. There  are  certain  extraordinary  expendi- 
tures which  must  be  made,  because  the  health  and 
safety  of  the  city  require  them.  The  sums  wanted 
for  these  are  very  large,  and  reinforce  the  reasons 
for  refusing  appropriations  except  for  objects  de- 
manded by  necessities  equally  imperious  and  con- 
trolling. We  all  know  how  desirable  many  things 
would  be  for  the  benefit  and  convenience  of  our 
different  municipal  institutions,  and  for  the  comfort 
and  enjoyment  of  our  citizens. 

Our  Library, — justly  tlie  pride  of  the  city,  — one 


iVI  A Y O R ’ S ADDRESS. 


9 


of  the  largest  and  best  in  the  world,  containing 
many  rare  and  valnahle  books,  which  if  destroyed 
could  not  be  replaced,  is  insufficiently  accommo- 
dated, and  in  constant  danger  from  loss  by  fire. 
It  should  be  removed  to  a building  more  suited 
to  its  wants  and  safer  from  confiagration.  But 
this  would  require  a new  structure,  costing  hun- 
dreds of  thousands  of  dollars,  and  should  not  now 
be  attempted. 

Our  City  Hall  can  no  longer  accommodate  our 
expanded  municipality,  with  all  its  annexations,  and 
we  are  forced  to  rent  other  buildings  at  the  ex- 
pense of  many  thousand  dollars,  for  the  use  of 
some  of  the  departments ; but  it  would  cost  a million 
and  more  to  give  us  what  we  need. 

It  is  very  desirable,  I was  about  to  say,  it  is 
almost  necessary,  that  we  should  have  a Court- 
House  more  convenient,  with  improved  sanitary  pro- 
visions, and  better  adapted  to  the  objects  of  such 
buildings.  The  judges,  the  bar,  and  those  who 
have  business  in  the  courts,  have  been  almost 
unanimous  in  their  convictions  in  this  respect; 
the  only  difference  of  opinion  being  in  regard  to 
location. 

Further  millions  will  be  wanted  for  this  purpose; 
we  must  improve  the  present  Court-House,  and  wait 
for  better  times  before  we  erect  a new  one. 


10 


MAYOR’S  ADDRESS. 


We  want  better  accommodations  for  the  Lunatic 
Hospital,  the  present  building,  as  the  Directors  of 
Public  Institutions  tell  us,  having  many  ''  defects, 
inconveniences,  and  limitations,”  lacks  ” many  of  the 
essential  features  now  regarded  as  almost  indispens- 
able in  a hospital  for  the  insane.”  Here  hundreds  of 
thousands  of  dollars  more  will  be  wanted. 

It  is  very  desirable  that  we  should  have  the  system 
of  Parks,  or  some  portion  of  it,  recommended  by  the 
Park  Commissioners,  for  the  comfort  and  convenience 
of  the  people.  Our  citizens  have  again  and  again  ex- 
pressed their  wishes  in  this  respect,  most  unequivocally 
and  emphatically;  but  millions  would  be  required  for 
the  purpose,  and  they  feel  that  this  is  matter  for  the 
future,  when  the  money  can  be  better  afforded. 

I might  remind  you  of  many  more  municipal  wants, 
which  must  in  the  future  be  supplied,  demanding  the 
appropriations  of  large  sums,  which  the  tax  levy 
could  not  supply,  and  which  must,  therefore,  be 
obtained  by  loan.  But  we  can  get  along  for  the  pres- 
ent without  the  costly  things  I have  mentioned,  and 
we  must.  Knowing  as  you  do  the  sentiments  of  your 
constituents  in  these  matters,  you  cannot  disappoint 
them  by  your  official  action.  Fortunately,  if  I may 
properly  so  express  myself,  we  are  so  near  the  limit 
imposed  by  law  to  our  municipal  debt  that  we  are 
estopped  from  borrowing  to  any  great  extent,  if  we 


MAYOR’S  ADDRESS. 


11 


were  so  disposed,  and  our  tax  levy  is  now  so  heavy 
that  we  cannot  raise  by  taxation,  the  money  required 
for  any  considerable  extraordinary  municipal  ex- 
penditure. 

We  should  not  only  forbear  to  increase,  if  possible, 
the  city  debt,  but  we  should  curtail  expenses.  The 
popular  conviction  that  the  government  costs  too 
much  must  be  true,  as  it  is  so  general.  There  can 
be  no  doubt  that  saving  can  be  made  in  all,  or  nearly 
all,  the  departments.  Upon  comparison  of  the  ex- 
penditures of  several  of  the  large  cities  of  this 
country,  it  will  be  found  that  Boston  expends  more 
in  proportion  to  her  population  and  geographical 
area  than  any  other;  more  than  ~New  York,  Cin- 
cinnati, Chicago,  St.  Louis,  Baltimore,  or  San  Fran- 
cisco. 

We  are  not  able  to  ascertain  the  exact  costs  of  the 
government  in  all  these  cities  by  the  amount  of  the 
general  annual  taxes  levied,  because  in  some  of  them 
special  taxes  are  laid  for  the  payment  of  certain 
things,  such  as  sewage,  paving,  etc.;  those  benefited 
thereby  being  required  to  defray  the  cost.  In  this 
city  all  such,  with  the  other  expenses  of  government, 
are  paid  from  the  general  levy,  there  being  here  very 
few  special  taxes.  We  can,  however,  approximate 
with  sufficient  exactness  the  costs  of  governing  these 
cities  to  enable  us  to  ascertain  which  is  spending 


12 


M A Y O K ’ S ADDRESS. 


the  most.  If  we  compare  the  payments  of  their  more 
important  departments,  such  as  the  Water,  Police, 
Health,  Fire,  Educational,  Street,  Lamp,  and  Sewer 
Departments,  we  shall  see  where  this  excess  is  to 
be  found. 


New  York  Cit}^  and  county,  about 
Boston,  about  . 

Cincinnati,  “ . 

Chicago,  “ . 

Baltimore,  “ . 

San  Francisco,  “ . 

St.  Louis,  “ . . . 


Tax. 

Population. 

$25,000,000 

1,100,000 

8,100,000 

350,000 

4,300,000 

275,000 

4,000,000 

425,000 

4,000,000 

350,000 

3,500,000 

265,000 

3.200,000 

420,000 

It  will  be  found  that  we  annually  expend  in 
lighting  thirty-seven  square  miles  of  streets  about 
$477,303.  Chicago,  with  75,000  more  inhabitants, 
lights  nearly  the  same  extent  of  territory  for 
$290,000. 

Cincinnati,  with  an  area  of  twenty-four  square 
miles,  and  a population  of  275,000,  expends  for  this 
purpose  $225,205  only. 

St.  Louis,  with  a population  of  70,000  more  than 
Boston,  paid  last  year  for  lighting  her  streets  but 
$302,000.  San  Francisco  only  $275,000.  Balti- 
more, with  its  350,000  inhabitants,  only  $245,000. 
Xew  York,  with  an  area  of  forty  square  miles,  and 
nearly  twice  the  number  of  lamps  we  have,  ex- 


:\I  A Y O R ’ S ADDRESS. 


13 


pended  in  her  lamp  department  but  $632,576,  or  only 
$15^273  more  than  Boston. 

It  Avill  he  found  that  in  the  care  of  our  streets  we 
pay  more  than  the  cities  above  mentioned.  Last 
year  the  costs  of  paving  and  repairing  of  roads  and 
streets  were  as  follows : — 


New  Y'ork,  about  ......  $700,000 

Cinciimati  .......  392,000 

St.  Louis 220,000 

Baltimore  .......  190,000 

Boston ........  850,000 


It  is  generally  conceded  that  the  streets  of 
Boston  are  kept  in  better  condition  than  those  of 
any  other  American  city  of  its  size.  They  are 
better  graded  and  better  paved.  Our  citizens  are 
proud  of  their  handsome  appearance,  and  demand 
that  they  shall  be  kept  up  to  their  high  standard; 
but  the  great  difference  in  the  cost  of  maintaining 
our  streets  above  that  of  the  other  cities  I have 
named,  justifies  the  suspicion  that  we  may  be 
paying  too  much  for  what  we  get,  and  that  reduc- 
tion in  cost  may  be  reached  without  abatement  in 
excellence.  It  will  be  your  duty  to  inquire  into 
this  matter,  and  devise,  if  possible,  some  new  ways 
of  management  by  which  the  saving,  so  devoutly 
to  be  wished,  may  be  accomplished. 


14 


MAYOR’S  ADDRESS. 


The  costs  of  the  Health  Department  of  Boston, 
and  the  cities  I have  mentioned,  were  as  follows : — 


The  payments  for  this  department  in  Boston,  and 
I presume  in  the  other  cities,  include  the  expense 
of  sweeping  the  streets  and  collecting  ashes  and 
house-offal. 

There  is  no  doubt  that  we  sweep  more  in  .Boston 
than  elsewhere;  but  whether  we  shouldn’t  at  pres- 
ent sweep  less,  and  with  less  costly  brooms,  is  a 
problem  for  you  to  solve.  It  does  not  appear  that 
constant  sweeping  makes  us  more  healthy  than  our 
neighbors,  for  the  sanitary  statistics  tell  us  that, 
after  ~New  York  and  Yew  Orleans,  Boston  is  the 
most  unhealthy  of  all  the  large  American  cities. 

The  costs  of  our  Fire  Department,  School  Depart- 
ment, in  fact  of  nearly  all  our  departments,  are 
larger  than  those  of  our  sister  cities,  with  the  single 
exception  of  Yew  York,  and,  relatively,  with  respect 
to  })opulation,  larger  than  that  city.  It  is  not  to  be 
doubted  that  economies  can  be  here  introduced,  by 
which  large  savings  may  be  made. 


Boston,  about 
New  York  . 
Cincinnati 
Baltimore 


$356,000 

665.000 
125,828 
181,422 

111.000 


St.  Louis 


M A Y O R ’ S ADDRESS. 


15 


If  it  shall  be  said  that  we  cannot  reduce  expenses 
and  have  everything  of  the  same  quality  and  charac- 
ter we  now  have,  I think  our  citizens  and  tax-payers 
would  prefer  to  surrender  some  municipal  luxuries  for 
the  present,  and  even  to  submit  to  some  inconven- 
iences, rather  than  pay  the  taxes  required  for  their 
purchase.  I do  not  believe  that  it  will  be  complained 
against  any  candidate,  on  the  day  of  election,  that  he 
refused  to  augment  the  city  taxes,  or  increase  the  city 
debt.  Party  spirit  is  apparently  repressed  by  no 
bounds ; but  be  assured  it  will  never  pass  this  Rubicon. 

COMMISSIONS. 

In  this  connection  let  me  draw  your  attention  to 
the  subject  of  Commissions.  I took  occasion  to  refer 
to  it  in  my  valedictory  remarks  last  year.  I then 
thought,  and  I think  now,  that  we  have  too  many 
three-headed  Commissions. 

They  are  costly  luxuries,  and  do  not  permit  the 
unity  of  action,  and  consequent  effectiveness,  of  a sin- 
gle head,  in  the  despatch  of  business;  furthermore, 
they  lack  the  responsibility  which  attaches  to  the 
latter. 

If  they  are  to  be  continued  because,  on  occasions, 
and  with  respect  to  certain  matters,  they  may  have 
been  found  useful,  the  Council  should  be  empowered 
to  establish  or  abolish  them,  as  may  be  deemed  best 


16 


M A Y O 1?  ’ S A ])  D R E S S . 


for  the  interests  of  the  city.  In  my  former  inangura] 
remarks,  I advised  a petition  to  the  Legislature  for  a 
grant  of  powers  to  this  end;  but  it  was  refused.  I 
recommend  a renewal  of  the  request.  If  we  are  again 
unsuccessful,  I would  suggest  that  we  solicit  the  nec- 
essary authority  to  enable  us  to  unite  such  depart- 
ments as  are  related  in  respect  to  their  subjects,  so  as 
to  reduce  the  number  of  commissions.  In  this  way 
great  reductions  in  expenses  may  be  accomplished. 

The  expediency  of  rearranging  and  consolidating 
the  several  bureaus  of  business  in  this  way  has  been 
considered  to  some  extent  by  our  citizens,  and,  as  far 
as  I can  ascertain,  approvingly.  If  the  City  Council 
of  last  year  reflected  the  opinions  of  their  constituents, 
it  would  seem  that  the  abolition  of  some  of  the  com- 
missions was  largely  favored. 

Should  the  Board  of  Street  Commissioners  be  re- 
tained, I think  we  might  economically  place  under  its 
conti-ol.  all  that  belongs  to  the  subject  of  streets, — 
paving,  sweeping,  lighting,  sewerage,  etc.  By  accept- 
ance of  the  Act  of  1877  we  get  the  power  necessary 
to  enable  us  to  do  so.  By  this  arrangement  we  should 
save  the  salaries  of  several  superintendents  and  other 
oflicers,  and  reap  the  advantage  of  increased  efficacy, 
by  having  under  one  control  the  different  por- 
tions of  the  same  business,  now  managed  by  several 
independent,  and  often  discordant,  oi'ganizations. 


M A Y O ir  S A ])  D K E S S . 


17 


The  Health  Department  might  take  charge  of  the 
City  Registrar’s  Department,  and  do  the  business  of 
some  of  onr  superfluous  inspectors. 

I do  not  propose  to  go  into  further  details.  I 
invite  you  to  examine  these  matters,  with  the  atten- 
tion their  importance  demands,  and  take  such  action 
thereon  as  the  interests  of  true  economy  require. 

Before  passing  from  this  branch  of  my  remarks,  I 
desire  to  say  that  the  government  of  1877  believed, 
after  a careful  consideration  of  the  subject,  our 
municipal  expenditures  might  be  reduced  two  or 
three  millions  of  dollars,  without  detriment  to  the 
public  service,  — and  a scheme  of  retrenchment  to 
this  end  was  devised,  but  was  o^^posed  on  party 
grounds  alone.  The  administration,  therefore,  was 
unable  to  effect  the  reforms  it  proposed.  As  a com- 
promise, however,  reductions  to  the  extent  of  a little 
over  a quaider  of  a million  in  the  appropriations  were 
made.  The  Council  of  last  year,  recognizing  the 
popular  demand  for  retrenchment,  followed  the  ex- 
ample, and  made  further  reductions  to  a considerable 
extent.  Let  us  complete  the  proposed  economies  of 
1877. 

Let  us  give  up  what  we  do  not  need.  If  there  be 
any  superfluous  offices,  we  must  abolish  them.  If 
there  are  more  officials  than  are  required  for  the 
business  they  have  to  do,  we  must  dismiss  them.  I 


18 


MAYOR’S  ADDRESS. 


have  every  sympathy  for  those  who  would  suffer  by 
such  action,  but  here  sympathy  has  no  right  to  be 
heard.  The  only  question  is,  what  does  the  proper 
administration  of  our  trust  compel  us  to  do? 


CITY  DEBT. 

The  gross  funded  debt  of  the  cit}%  on  December 

31,  1878,  was $41,809,583  31 

The  Sinking  Funds,  and  other  available  means, 

on  December  31,  1878,  amounted  to  . . 15,625,411  89 


So  that  we  ma}^  call  the  net  debt  . . . 826,184,171  42 

The  Water  Debt,  on  December  31,  1878,  was  . 12,991,273  98 

As  the  income  derived  from  water-rates  more 
than  pa3’S  the  interest  on  the  Water  Debt  (the 
net  income  of  the  Cochituate  and  M}^stic 
Water  Works,  for  the  }^ear  1878,  being  $102,- 
430.39),  we  should  deduct  the  Water  Debt 
from  our  liabilities,  in  order  to  ascertain  the 
just  relations  between  our  obligations  and  our 
assets.  Deducting,  therefore,  this  amount 
from  the  above  balance,  we  find  the  net  debt 

of  the  cit}',  exclusive  of  the  Water  Debt, 

to  be $13,192,897.44 


This  is  very  satisfactory,  in  view  of  the  city  valua- 
tion, which,  after  having  been  reduced  $62,155,624 
in  1877,  and  $56,393,719.51  in  1878,  now  amounts  to 
$630,446,866.49 ; but  we  must  not  allow  the  satisfac- 


I\I  A Y 0 R ’ S ADDRESS. 


19 


tion  resulting  from  this  consoling  financial  statement 
to  seduce  us  into  the  incurrence  of  new  obligations 
for  measures  not  imperatively  demanded  at  this 
time.  It  is  to  be  remembered  that  we  have  author- 
ized loans 

For  constmcting  sewers,  amounting  to  . . . $3,337,000 

For  the  new  Latin  and  High  Schools,  amounting 


to  ........  . 75,000 

For  Stoi^y  Brook  Improvement  ....  133,000 

For  Commercial-street  widening,  amounting  to  . 500,000 

For  Roxhury  Canal  Improvement  ....  41,000 


S4,086,000 

which  have  not  been  negotiated,  and  must  hereafter 
be  added  to  the  city  debt. 

You  are  aware  that  we  are  restricted  by  law  from 
incurring  debt  beyond  a certain  percentage  of  our 
tax  valuation.  The  limit  at  this  time  is  nearly 
reached,  there  being  a margin  of  only  about 
$1,800,000,  — according  to  my  construction  of  the 
law. 

During  the  present  year,  and  including  Jan.  1, 
1880,  $3,797,800  of  our  debt  will  mature.  The 
means  for  payment  are,  or  will  be,  in  the  sinking 
funds,  so  that  our  obligations  can  be  promptly  met. 

The  City  Council  of  1877,  in  their  desire  to  relieve 
as  much  as  possible  the  burden  of  taxation,  adopted 


20 


M A Y ( ) K ’ S A 1)  1)  K P:  S S . 


the  policy  of  retaining  in  the  Treasury  all  excess  of 
income  and  taxes  over  estimated  income  and  taxes,  — 
all  excess  of  revenue  derived  from  liquor  licenses  and 
of  appropriations  over  expenditures.  I do  not  think 
we  went  far  enough  in  this  reform.  At  this  period 
of  depression  in  every  branch  of  business,  it  is  our 
duty,  as  Avell  as  onr  policy,  to  draw  as  little  as  pos- 
sible from  our  impoverished  tax-payers.  It  has  been 
estimated,  by  competent  authority,  that  in  this  coun- 
try about  one-third  of  each  man’s  earnings  is  taken 
for  taxes  by  the  State  and  Federal  goveimments. 
Apparently  we  are  trying  to  ascertain  the  capacity 
of  our  people  to  disgorge  without  bankruptcy.  It 
requires  little  imagination  to  picture  the  result  of  this 
policy  if  it  is  continued  much  longer.  Sinking  funds 
are  excellent  contrivances  for  the  liquidation  of  debts, 
if  properly  managed;  but  they  should  not  he  allowed 
to  swallow  more  of  the  substance  of  the  people  than 
belongs  to  them.  The  law  requires  us  to  raise  by 
taxation,  and  appropriate  to  each  sinking  fund,  such 
percentage  of  any  city  loan,  as  will,  with  its  accumu- 
lations, extinguish  the  debt  at  maturity.  We  perform 
our  whole  duty  by  a strict  compliance  with  this  obli- 
gation, and  we  ought  not  to  he  required  to  do  more. 
It  is  every  way  bad  ymlicy  to  pay  our  debts  fastei* 
than  provided  by  law.  We  are  not  only  compelled 
to  submit  to  unnecessary  taxation  by  so  doing,  but 


M A Y O K ’ 8 A D D R E 8 8 . 


21 


tempted  to  municipal  extravagance,  and  the  incur- 
rence of  new  debts  upon  finding  ourselves  rid  of 
old  ones. 

This  subject  has  been  recently  before  the  city 
government,  and  I desire  to  quote  the  remarks  of 
Ml*.  Crocker,  a member  of  the  Common  Council  of 
last  year,  thereon,  for  be  expresses  not  only  my 
own,  but  the  sentiments  of  a large  portion  of  our 
citizens. 

He  says : “ It  is  folly  to  pay  more  money  towards 
the  city  debt  than  the  law  requires,  and  more  than 
the  due  proportion  that  is  needed  to  enable  ns  to 
meet  onr  debt  at  maturity.  The  statutes  require  that 
we  should  put  into  the  sinking  fund  enough  money 
each  year  to  provide  for  paying  the  debt  when  it 
matures.  This  is  all  the  law  requires,  and  it  seems 
to  me  that  to  do  much  more  would  be  folly.  For  the 
city  of  Boston,  to  do  as  it  has  heen  doing  for  years 
l^ast^  and  is  doing  to-day,^  — taxing  the  already  over- 
taxed citizens  to  pat  into  the  sinking  funds  hundreds 
of  thousands  of  dollars  more  than  the  law  requires, — 
seems  to  me  to  he  the  height  of  folly.  We  are  strain- 
ing every  nerve,  and  are  unnecessarily  grinding  the 
poor  tax-payers,  who  are  suffering  enough  at  present, 
to  pay  an  unreasonable  proportion  of  the  city  debt, 
in  order  that  five  or  ten  years  from  now,  when  people 
find  out  that  the  thing  has  been  overdone,  and  that 


22 


MAYOR’S  ADDRESS. 


an  imi’easonable  proportion  of  the  debt  has  been  pro- 
vided for,  future  City  Councils  may  be  extravagant 
and  run  the  city  into  new  debts.” 

In  view  of  the  above,  let  ns  render  to  Cinsar  only 
the  things  that  are  Caesar’s.  I wonld  raise  by  taxa- 
tion all  that  the  law  requires  for  the  sinking  funds, 
and  no  more;  and,  therefore,  advise  the  adoption  of 
the  policy  of  keeping  in  the  treasury  for  such  pur- 
poses as  the  Council  may  order,  all  moneys  received 
from  sales  of  real  estate,  from  payments  on  account 
of  notes  or  bonds,  or  from  betterment  assessments, 
which  by  ordinance  are  now  payable  to  the  commis- 
sioners, and  applied  to  the  reduction  of  the  city 
debt.  I would  advise  an  amendment  of  the  ordi- 
nance of  1877,  so  that  any  balance  of  a sinking 
fund,  after  the  payment  of  the  debt  for  whic^h 
it  was  created,  be  also  jDaid  into  the  treasury, 
instead  of  transferring  it  to  other  sinking  funds, 
as  now  required.  If  we  had  not  follgwed  what 
seems  to  me  the  absurd  policy  of  paying  our 
debts  before  they  were  due,  but  paid  into  the 
sinking  funds  the  amount  expended  according  to 
the  Auditoi*’s  lIe])ort  for  the  purchase  of  immature 
1)onds,  $010,437,  we  should  have  reduced  so  much 
the  sum  required  to  be  i*aised  by  taxation. 

If*  we  adopt  tlie  ])lan  wliich  has  been  suggested 
in  respect  to  payments  to  the  sinking  funds, 


M A Y O K ’ S A I)  DRESS. 


23 


the  amount  of  the  annual  tax  levy  would  be 
greatly  diminished;  and  yet  we  should  have  on 
hand  in  these  funds  the  means  to  pay,  at  maturity, 
the  debts  they  were  created  to  extinguish. 


WATER  BOARD. 


The  net  cost  of  the  Cochitiuite  AVater 
AA^orks  to  Jan.  1,  1879  . . . . 

The  amount  of  the  Cochituate  AA'ater  Debt 
at  that  time  was  . . . . . 

The  net  income  for  1878  was  . 


$15,796,012  68 


$11,763,273  98 
$27,933  97 


The  Mystic  AVater  Debt  on  Jan.  1,  1879, 

was $1,228,000  00 

The  net  income  for  1878,  from  these 

works  .......  $74,496  42 


The  commissioners  report  that  all  the  water 
works  are  in  good  condition.  ” The  new  supply 
works,  so  far  as  authority  for  their  construction 
has  been  given  by  the  City  Council,  are  nearly 
finished.  The  conduit  from  Farm  pond  'in  Fram- 
ingham to  Chestnut  Hill  is  completed,  and  used 
from  time  to  time,  when  necessary  to  .replenish 
Lake  Cochituate  and  the  Chestnut-Hill  Reservoir. 
The  conduit  from  Sudbury  river  to  Farm  pond  is 
also  completed. 


24 


M A Y R ’ S ADD  R p:  S S . 


” The  condition  of  the  three  storage  basins  is 
as  follows : — 

” Basin  IN'o.  1 is  all  ready  for  water,  but  not 
filled.  The  Dam  is  entirely  finished,  and  the  Gate- 
house, which  is  under  contract,  will  be  completed 
early  in  the  spring. 

” Basin  No.  2 is  nearly  ready  for  use. 

''  Basin  No.  3 is  wholly  completed  and  partially 
full  of  water. 

''  With  one  of  the  new  supply  storage  basins 
in  use,  the  combined  capacities  of  the  Sudbury 
river  and  Cochituate  works,  in  a season  of  drought, 
are  equal  to  a daily  supply  of  about  thirty 
million  gallons;  with  all  three  of  the  new  supply 
basins  in  use,  forty  million  gallons,  and  a very 
much  larger  quantity  in  ordinary  years. 

The  consumption  on  the  Highland  High-service 
Works  has  nearly  reached  their  full  capacity,  and  the 
necessity  of  either  taking  some  effective  steps  for 
the  prevention  of  the  enormous  waste  by  the  citizens, 
or  of  building  new  and  much  larger  works,  is  upon  us. 

” The  capacity  of  the  Mystic  Works  for  a season  of 
extreme  drought  is  about  eight  million  gallons  per 
day;  and  for  an  ordinary  year  from  forty  to  fifty  per 
cent.  gi*eater. 

” A second  force  main  has  been  added  to  the  Mystic 
Works  the  ])ast  year,  and  a connection  made  with 


I\I  A Y K ’ S AD  D R ESS. 


25 


the  distribution  mains,  so  that  water  ean  be  pumped 
directly  into  the  city,  without  passing  through  the 
reservoir,  if  necessary.” 

IMPROVED  SEWERAGE. 

In  August,  1877,  the  City  Government  adopted 
the  system  of  improved  sewerage  recommended  by 
the  scientific  commission  charged  with  the  considera- 
tion of  the  subject,  and  appropriated  for  the  work 
the  sum  of  $3,713,000.  The  work  was  commenced 
immediately  thereafter,  and  considerable  progress 
made  before  the  closing  of  the  year,  not  only  in 
locating  the  sewer,  settling  land  damages,  and  mak- 
ing contracts  for  construction,  but  also  in  construction. 
It  has  been  vigorously  prosecuted  during  the  year. 
The  length  of  the  sewer  is  about  twelve  and  one- 
half  miles.  Nearly  four  miles  of  it  are  now  com- 
IDleted,  and  two  and  a half  miles  more  are  under  con- 
tract. The  recent  extension  of  East  Chester  Park 
will  permit  work  upon  this  section  to  progress  during 
the  year.  I am  informed  by  the  accomplished  en- 
gineer in  charge  of  the  work  that  thus  far,  ” while 
there  have  been  some  difficulties  to  overcome,  inci- 
dent to  its  magnitude,  to  the  character  of  the  soil 
bordering  the  shores  of  the  city,  and  to  the  narrow 
aud  crowded  condition  of  the  streets  traversed,  no 
unforeseen  obstacles  have  been  discovered  to  raise  a 


2(5 


M A Y O R ’ S A 1)  1)  R E S S . 


doubt  as  to  the  practicability  of  the  scheme  or  its 
ultimate  success. 

” The  cheapness  of  labor  and  material,  which  has 
prevailed  during  the  past  year,  has  proved  very 
favorable  to  the  economical  construction  of  the  work, 
and  demonstrated  the  wisdom  of  the  city  govern- 
ment in  entering  upon  the  improvement  at  the  time 
it  did.  About  six  hundred  laborers  have  found  con- 
stant employment  upon  the  work,  when  many  other 
avenues  of  employment  were  closed. 

The  sections  of  work  already  contracted  for  have 
almost  without  exception  been  let  at  prices  consider- 
ably below  the  engineer’s  estimate  of  their  probable 
cost,  and  this  saving  has  not  been  effected  at  the  ex- 
pense of  efficiency  or  durability.  Every  portion  of 
the  sewers  has  been  built  under  constant  inspection, 
and  a superior  class  of  work  has  been  obtained.  It  is 
confidently  expected  that  the  system  will  be  so  far 
advanced  by  the  summer  of  1880  that  the  sewage 
now  emptying  into  Charles  river,  above  Cragie’s 
bridge,  and  that  emptying  into  South  Bay  and  Fort 
Point  Channel,  can  be  diverted  to  Old  Harbor. Point, 
where  it  will  be  pumped  and  temporarily  discharged 
into  the  bay.” 

I have  given  you  these  facts  at  some  length,  know- 
ing the  great  interest  you  and  your  constituents  feel 
in  this  most  importajit  undertaking. 


M A Y ( ) R ’ S A 1)  D R ESS. 


27 


PUBLIC  GKOUJ^DS  AND  SQUARES. 

In  July,  1877,  the  Pai*k  Commissioners  were  in- 
structed by  the  City  Council  to  purchase,  provided 
the  same  could  be  done  at  a price  not  exceeding  ten 
cents  per  square  foot,  certain  flats  on  what  is  known 
as  the  Back  Bay  territory,  — which,  by  reason  of  their 
having  been  for  years  the  receptacle  of  the  sewage 
of  Boxbury  and  its  neighborhood,  were  most  danger- 
to  the  health  of  the  city,  — with  a view  of  Ailing  the 
same,  and  of  ultimately  making  thereon  a park. 

In  compliance  with  this  direction,  the  purchase  of 
about  one  hundred  and  six  acres  was  made  at  the  cost 
named  in  the  order.  Although  it  was  expected,  as  I 
have  stated,  that  a park  would  be  hereafter  made  here, 
and  this  pui’pose  was  set  forth  in  the  order  for  purchase, 
sanitary  considerations  were  the  immediate  cause  of  the 
acquisition  of  these  lands.  As  is  well  known,  great 
apprehensions  had  been  expressed  by  the  sanitary 
authorities  lest  this  portion  of  the  Back  Bay  would 
become,  in  the  words  of  the  late  eminent  Dr.  Edward 
H.  Clarke,  ''  plague  spots  and  nurseries  of  disease, 
unless  they  are  reserved  and  left  unoccupied;”  and  I 
feel  that  I may  say,  without  fear  of  contradiction,  that 
this  purchase  has  received  the  approval  of  the  citizens 
and  tax-payers.  I have  never  heard  any  objection  to 
it.  The  necessity  of  the  acquisition,  and  the  very 


28 


MAYOR’S  ADDRESS. 


small  price  paid  for  it,  have  fully  vindicated  the 
measure. 

The  exhalations  from  this  ” natural  cesspool,”  as 
these  hats  have  been  very  pi*o])erly  called,  are  most 
offensive  and  dangerous,  especially  in  the  summer 
months.  Many  of  our  citizens,  on  this  account,  have 
avoided  the  new-made  lands  in  the  vicinity  as  a place 
of  residence,  and  a vast  amount  of  taxable  property 
is  consequently  dejweciating  in  value.  This  nuisance, 
for  which  the  city  has  been  indicted  by  the  Grand 
Jury,  together  with  our  defective  sewerage,  has  made 
Boston  one  of  the  unhealthy  cities  of  the  country. 
The  mischiefs  resulting  from  the  latter  will  be  cured 
by  the  completion  of  onr  system  of  intercepting  sew- 
ers, but  the  evil  effects  of  the  former  will  only  be  cor- 
rected when  these  pestilential  Hats  shall  be  filled.  We 
should  therefore  do  the  work  as  soon  as  possible. 
The  City  Council  of  last  year  appropriated  $50,000 
towards  it,  and  about  400,000  square  feet  of  the 
])ark  road  and  entrances  have  been  filled;  98,000 
loads  of  filling  were  purchased,  and  57,000  loads  of 
ashes  deposited  by  the  Health  Department.  At  the 
date  of  the  last  draft  of  the  Commissioners,  $43,000 
of  the  appropriation  had  been  expended. 

Carts  only  have  hitherto  been  used  iu  filling,  and  it 
is  obvious  that  it  would  require  a long  time  to  cover 
a hundred  acres  by  such  means.  We  should  fill  — 


A Y ( ) K ’ S AD  D R p:  S S . 


29 


as  all  the  Back  Bay  lands  have  been  filled — by 
steam-shovels  and  ears.  If  it  is  not  thought  ex- 
pedient to  make  the  park  at  this  time.  I wonld 
advise  a contract  with  the  raili’oads,  or  other  parties 
having  the  appliances  for  doing  extensive  work  for 
the  immediate  filling  of  these  flats,  that  their  balefnl 
exhalations  may  be  arrested  at  once.  I understand 
that  we  have  abundance  of  loam  at  the  water-basins 
in  Framingham.  By  spreading  this  upon  the  ground 
and  sowing  grass-seed  we  should  absorb,  through 
the  roots  of  the  grasses,  the  poisonous  gases  which 
would  otherwise  exhale.  A nuisance,  dangerous  to 
the  health  and  injurious  to  the  prosperity  of  the 
city,  would  thus  be  converted  into  a wholesome  and 
beautiful  locality,  whei*e  the  citizens  who  now  avoid 
it  would  resort  for  recreation  and  enjoyment.  The 
cost  of  this  improvement  would  be  comparatively 
small.  We  could  delay  ornamentation  and  other 
park  work  until  more  prosperous  times,  although. I 
hold  to  the  same  opinion  expressed  by  me  in  my 
valedictoiy  remarks  last  year,  which  I beg  leave  to 
repeat  here,  — ”that  it  would  be  the  truest  economy 
to  make  the  park  as  soon  as  possible,  for  it  has  been 
demonstrated,  by  the  experience  of  other  cities,  that 
parks  have  so  greatly  i*aised  the  value  of  surround- 
ing property  as  to*repay  their  cost  in  a short  time  by 
the  revenue  derived  from  increased  taxation.  In 


30 


MAYOR’S  ADDRESS. 


the  neighborhood  of  this  park  the  houses  of  our 
wealthy  citizens  will  be  found.  As  soon  as  the  land 
is  filled  and  made  attractive  all  sanitary  apprehen- 
sions will  dissipate,  building  commence  at  once,  and 
costly  structures,  like  those  which  make  Beacon 
street  and  Commonwealth  avenue  the  finest  streets 
of  any  city  in  this  country,  be  erected,  which  will 
annually  yield,  like  those  in  other  parts  of  Back 
Bay,  hundreds  of  thousands  of  dollars  to  the  treasury.” 

Many  petitions,  signed  by  large  numbers  of  our 
wealthiest  tax-payers  and  prominent  citizens,  were 
made  to  the  City  Council  last  year,  asking  for  the 
immediate  improvement  of  the  park  grounds,  and  it 
was  observed  by  Alderman  Guild,  in  presenting 
these  petitions,  that  "the  demand  for  laying  out  this 
park  and  for  the  abatement  of  this  nuisance  is  made 
by  those  who  will  have  to  pay  the  larger  portion  of 
the  cost.” 

It  is  for  you  to  consider  whether  the  reasons  for 
proceeding  with  the  work  are  conti’olling  or  not.  I 
think,  however,  yon  cannot  doubt  the  necessity,  and 
therefore  the  propriety,  of  filling  these  lands,  as  sug- 
gested, at  once.  I am  extremely  reluctant,  after  all 
I have  said  upon  the  subject  of  economy,  to  advise 
new  undertakings  involving  expense;  but,  required 
by  the  (*ity  charter  and  my  oath  of  office  to  suggest 
to  the  consideration  of  the  City  Council  whatevei’ 


M A Y O R ’ S A 1)  D R ESS. 


31 


shall  affect  the  convenience,  comfort,  and  health  of 
the  city,  I cannot  do  otherwise. 

The  Park  Commissioners,  in  their  sixth  report, 
advise  the  early  completion  of  Commonwealth 
avenue  as  a relief  from  the  constant  and  increasing 
inconvenience  and  danger  from  the  great  amount 
of  travel  on  the  narrow  mill-dam.  As  this  must 
be  done  at  some  time,  I would  suggest,  if  the  cost 
will  not  be  found  too  much,  that  it  he  done  now. 


SCHOOL  DEPARTMENT. 

The  whole  number  of  pupils  in  the  schools  between 

5 and  15  years  of  age  in  1878,  was  . . . 60,762 

Being  a decrease  for  the  year  of  . . . . 2,728 

The  number  of  teachers  during  1875  . . . 1,237 

Decrease  ........  31 

Number  of  schools  ......  63 


Total  expenditures  of  the  School  Department  . $1,803,060  36 

Amount  paid  b}*  School  Board  for 

salaries  of  teachers  . . $1,123,449  13 

Salaries  of  officers  . . . 56,021  37 

Incidental  expenses  . . . 227,697  07 

$1,407,167  57 


Paid  bj’  Public  Building  Committee 

for  incidentals  . . . $125,713  09 

270,179  70 

$395,892  79 


For  school-houses  and  lots 


$1,803,060  36 


32 


M A Y O R ’ S iV  D I)  R E S S . 


Of  this  amount  expended  for  sehool-houses, 
$108,151.73  was  for  the  new  Latin  and  High  Schools. 

By  the  legislative  act  of  1875  the  School  Board  was 
reorganized,  and  the  Board  of  Supervisors  created. 
Now  that  the  system  has  got  into  good  working 
order,  it  is  regarded  by  the  committee,  and  those  who 
are  watchful  of  the  interests  of  onr  schools,  as,  upon 
the  whole,  a success.  One  of  the  chief  objects  of  the 
change  was  to  obtain  a better  agency  for  the  exami- 
nation of  both  teachers  and  schools.  ” The  appoint- 
ment of  teachers  heretofore,’’  say  the  committee  in 
their  annual  report  of  1875,  ” without  careful  con- 
sideration of  their  qualifications,  was  an  evil  which 
had  begun  to  show  its  disastrous  efiects  by  unmis- 
takable signs.”  This  might  be  expected,  as  the  ex- 
aminations of  candidates  were  made  by  local  com- 
mittees. Experts,  those  only  who  have  studied  and 
understand  educational  requirements,  are  best  quali- 
fied for  the  work.  These  are  to  be  found  in  the  Board 
of  Suj)ervisors,  acting  under  the  School  Committee, 
through  the  Committee  on  Examinations.  As  the 
selection  of  competent  teachers  is  so  necessary  for 
the  success  of  the  schools  it  is  matter  for  congratula- 
tion that  the  happiest  results  are  being  obtained  by 
the  new  method. 

The  School  Committee,  in  their  recent  report,  sug- 
gest some  changes  demanding  serious  consideration; 


A Y O ir  S A ])  1)  1?  E S S . 


33 


foi*,  if  adopted,  large  savings  will  be  made  to  the 
treasury. 

They  advise  the  conversion  of  the  High  Schools,  in 
the  Brighton,  Dorchester,  West  Roxhury,  and  Charles- 
town Districts,  from  independent  to  branch  schools 
of  the  English  High  School. 

Among  the  reasons  given  for  the  proposed  change 
is  the  saving  of  expense,  and  the  attainment  of  greater 
efficiency  in  the  High  Schools. 

These  schools  were  in  existence  when  the  districts 
were  annexed,  with  all  the  teachers  and  machinery  of 
High  Schools. 

In  some  of  them,  says  the  report,  ” the  number  of 
third-year  pupils,  or  graduating  class,  is  as  small  as 
thirteen,  and  the  whole  number  of  pupils  in  one 
school  is  only  fifty-six,  while  in  some  cases  special 
instructors  must  be  employed  to  teach  classes  of  two 
or  three  pupils  ” ! 

The  comm-ittee  append  to  their  remarks  this  conun- 
drum, ''  Does  not  this  impose  an  unnecessary  burden 
upon  the  city?  ” It  can  he  answered  by  many  who 
have  not  seen  a High  School. 

Established  as  branches,  the  salaries  of  the  prin- 
cipals would  be  saved  and  the  expenses  otherwise 
reduced. 

Another, suggestion  of  the  School  Committee  is, 
that  the  ^lormal  School  be  abolished.  This  school 


M 


MAYO  R ’ S A D D R E vS  S . 


was  established  to  educate  and  train  girls  for  teach- 
ing. It  does  not  seem,  in  the  opinion  of  those  best 
qualified  to  judge,  to  have  accomplished  successfully 
the  purposes  of  its  organization. 

Only  one  hundred  and  sixty-six  of  the  teachers  now 
employed  by  the  city  graduated  from  this  school.  It 
costs  the  treasury  nearly  $8,000  yearly  for  its  support. 
In  view  of  these  facts,  and  of  the  reasons  given  by  the 
committee  in  their  report,  I trust  the  school  will  be 
discontinued. 

The  schools  of  Boston  are  the  pride  and  the  hope 
of  its  citizens.  They  willingly  pay  the  taxes  required 
for  their  support.  The  School  Committee  tell  us,  that 
they  are  ” on  the  whole,  in  a very  flourishing  condition, 
and  the  high  standard  of  excellence  of  their  past 
history  is  fully  maintained  in  the  present.”  I have 
every  confidence  in  the  truth  of  the  statement. 

Upon  the  retirement  last  year  of  Mr.  Phil  brick. 
Dr.  Samuel  Eliot  was  chosen  Superintendent,  and  the 
vigor  and  earnestness  with  which  he  has  commenced 
his  arduous  duties  justify  the  highest  expectations 
' as  to  future  results.  Ilis  recent  semi-annual  report 
is  full  of  valuable  observations  and  suggestions, 
showing  he  has  thought  long  and  deeply  upon  the 
great  subject  of  education.  It  is  evident  that  he  has 
a thorough  appreciation  of  the  duties  of  the  teachei*, 
and  a true  understanding  of  teaching  as  an  art. 


M A Y O R ’ S ADDRESS. 


35 


The  building  of  the  new  Latin  and  High  School- 
house  progresses,  and  it  is  expected  that  it  will  be 
ready  for  occupation  early  in  1880.  The  interests  of 
these  schools  require  that  they  should  get  into  it  as 
soon  as  possible.  Only  a part  of  their  pupils  are 
accommodated  in  the  Bedford-street  school-house, 
the  rest  being  quartered  in  the  South-street  and  Har- 
rison-avenue  school-houses.  This  arrangement  must 
injuriously  affect,  not  onl}^  the  comfort,  but  the  dis- 
cipline, of  the  schools. 

I may  here  remind  you,  that,  by  the  order  granting 
the  money  required  in  the  building  of  the  new  school- 
house,  the  proceeds  of  the  sales  of  the  Bedford-street, 
South-street,  Chardon-street,  and  Harrison-avenue 
school-houses  and  sites  were  appropriated  for  the 
building.  It  is  expected  that  the  amount  thus  real- 
ized will  be  more  than  sufficient  for  the  purpose,  so 
that  the  construction  of  these  magnificent  school- 
houses  will  not  increase  the  city  debt. 

INDUSTEIAL  SCHOOLS. 

The  policy  of  establishing  Developing  and  Indus- 
trial Schools  has  been  before  the  public  for  some  time, 
and  the  matter  has  been  much  discussed  by  many 
of  our  prominent  citizens  interested  in  educational 
progress. 


3G 


M A Y O K ’ S A D D R E S S . 


It  came  before  the  City  Council  in  1877,  upon 
a petition  for  the  establishment,  as  an  experiment, 
of  one  of  these  schools.  It  was  referred  to  a 
special  committee,  before  whom  an  exhaustive  hear- 
ing was  had,  and  they  reported  in  favor  of  the 
measure;  but  it  failed  to  receive  the  approval  of 
the  Aldermen. 

I am  so  convinced  of  the  importance  of  these 
schools  that  I feel  it  my  duty  to  bring  the  subject 
anew  to  your  attention. 

It  should  be  the  policy  of  the  State  to  create  as 
many  producers  as  possible.  It  should  be  the  policy 
of  the  State  to  train  its  youth  so  that  it  can  earn  its 
bread  through  some  form  of  labor.  It  should  be  the 
policy  of  the  State  to  adopt  the  best  methods  to  reach 
this  end. 

We  have  no  longer  the  apprentice  system  by 
which  th^  young  are  trained  to  understand  the 
vocation,  or  trade,  which  they  propose  to  pursue 
for  a livelihood,  and  perhaps  it  is  not  to  be  re- 
gretted that  this  system  has  been  abandoned. 
What  we  now  want  is,  the  opportunity  for  every 
boy  to  find  out,  through  the  developing  school, 
what  particular  trade,  art,  or  calling,  he  is  best 
fitted  for  by  natural  taste,  or  aptitude;  so  that 
he  may  be  taken  to  the  school-shop  where  the 
handcraft  he  proposes  to  follow  is  taught,  and 


M A Y O R ’ S A D 1)  R E S S . 


37 


receive  a thorough  training  therein.  It  is  be- 
lieved that  in  this  way  he  conld  become  a better 
mechanic  in  two  years  than  he  conld  under  the 
obsolete  apprentice  system  in  seven;  because  in 
the  one  case  he  would  he^  thoroughly  taught  by 
competent  instructors,  while  in  the  other  he  would 
get  only  the  information  to  be  obtained  from  such 
work  as  may  be  profitable  to  the  master.  But 
the  greatest  advantage  of  the  proposed  system  is 
the  opportunity  it  gives,  through  the  developing 
school,  to  help  the  boy,  at  the  early  and  plastic 
age,  to  discover  the  paidicular  occupation  to  which 
his  natural  bent  or  taste  inclines. 

The  community  is  a gainer  by  this,  for  more 
and  better  work  will  he  accomplished  by  those 
who  labor  con  amore^  in  the  direction  of  their 
natural  tastes,  than  when  they  do  so  with  aver- 
sion, because  of  dislike  to  the  kind  of  work. 

It  is  well  known,  that  most  of  those  Avho  grad- 
uate from  our  public  schools,  either  through  pref- 
erence or  necessity,  make  their  living  by  their 
hands.  It  .would  seem  proper,  therefore,  that  a 
boy  after  he  leaves  school  should  be  placed 
where  he  can  get  a knowledge  of  some  calling, 
by  which  he  may  not  only  support  himself,  but 
become  a producei*,  especially  as  the  system  of 
apprenticeship  has  been  abandoned. 


38 


MAYOR’S  A I)  I)  R ESS. 


It  would  be  out  of  plage  to  discuss  here  all  the 
merits  of  the  scheme.  I may  say,  however,  that 
it  has  been  considered  approvingly  by  the  press, 
by  many  of  our  distinguished  educators,  and 
many  earnest  friends  of  our  school  system.  The 
School  Committee  recommend  it,  although  the 
able  and  accomplished  Superintendent,  while  ap- 
parently not  opposed  to  industrial  schools,  thinks 
they  ought  not  to  be  maintained  at  the  public 
expense. 

These  schools  can  be  established  at  small  cost, 
and  if  well  managed,  might  be  made  self-supporting. 


PUBLIC  LIBRARY. 

This  institution  has  increased  so  much  that  it 
now  contains,  with  its  branches,  over  360,000 
books,  — a larger  number  than  any  other  library 
in  the  country. 

It  has  been  thought  for  a long  time  that  its 
relations  to  the  city  government  was  not  such  as 
its  best  interests  demanded,  and  that  its  incorpora- 
tion, like  some  other  municipal  departments,  would 
give  it  capacities  and  powers  which  might  better 
promote  its  usefulness  and  accomplish  the  objects 
lor  which  it  was  organized.  Application  was  there- 
fore made  to  the  Legislature  of  last  year  for  a 


M A Y O R ’ S ADDRESS. 


39 


charter,  which  was  granted,  and  the  corporation 
duly  organized  in  May. 

By  the  provisions  of  the  act  the  trustees  have 
the  power  to  hold  real  and  personal  estate  given 
or  devised  for  its  benefit,  and  all  other  privileges 
in  the  general  laws  relating  to  such  corporations. 
They  have  also  the  care  and  control  of  the  Libraiy 
and  all  its  branches.  ^Notwithstanding  these  ample 
powers,  the  control  of  the  city  government  is  suf- 
ficiently retained  to  secure  the  good  management 
of  this  important  institution. 

The  Library  has  now  eight  branches.  They  are 
as  follows:  The  East  Boston,  South  Boston,  Box- 
bury,  Charlestown,  Brighton,  Dorchester,  South 
End,  and  Jamaica  Plain. 

As  I have  elsewhere. said,  the  necessity  of  more 
ample  accommodations  for  this  institution  has  long 
been  recognized,  but  no  government  has  felt  justi- 
fied in  expending  the  moneys  required  for  this 
purpose. 

Whether  such  a building  as  the  safety  and  the 
convenience  of  the  Library  requires  shall  be  built 
on  some  of  the  Back  Bay  lots;  or  whether  an 
addition  shall  be  made  to  the  present  edifice,  on  the 
land  in  its  rear  purchased  for  the  purpose  in  1872;  or 
whether  relief  should  be  obtained  by  the  removal  of 
the  Lower  Hall  library  and  reading  room  to  other 


40 


]\I  A Y O R ’ vS  A D DRESS. 


quarters,  — are  questions  which  should  receive  your 
attention,  as  it  is  necessary  that  something  should  be 
done.  The  proposition  to  build  an  addition  to  the 
present  building  seems  to  me  inexpedient  and 
unwise,  as  it  would  be  merely  a temporary  relief, 
involving  a considerable  expense.  I would  suggest, 
as  the  best  thing  at  this  time,  the  removal  of  the 
Lower  Hall  library  and  reading-room  to  some 
convenient  place,  until  the  time,  shall  arrive  when 
it  will  be  proper  to  erect’  a new  building. 


PUBLIC  INSTITUTIONS. 

The  Lunatic  Hospital,  Almshouses,  and  Houses 
of  Correction,  Industry,  and  Reformation,  comprise 
the  bureau  known  as  the  Public  Institutions  of  the 
city,  and  are  placed  under  the  charge  of  a Board  of 
Directors  by  the  statutes  of  the  Commonwealth,  sub- 
ject to  certain  municipal  supervision  and  control. 
This  is  one  of  the  most  important  departments  of  the 
government.  ISTothing  more  truly  indicates  the 
moral  progress  — I was  about  to  say,  the  civilization 
of  a community  — than  its  recognition  of  the  duty  of 
keeping  in  the  best  condition  its  charitable  and 
reformatory  institutions.  I have  watched  with  atten- 
tion the  management  of  those  belonging  to  the  city, 
nnd  have  noted  with  much  satisfaction  the  excellent 


« 


M A YOU’  S A D D R ESS. 


41 


system  by  which  they  are  managed.  I have  espe- 
cially noticed  a commendable  disposition  on  the  part 
of  the  directors  to  keep  abreast  of  the  advancing 
ideas  of  the  times,  in  respect  to  everything  which 
shall  aid  in  securing  the  objects  for  which  these 
institutions  were  organized.  I would  especially 
designate  the  excellent  manner  in  which  those 
at  Deer  Island  are  managed.  I made  fre- 
quent visits  to  them  when  I previously  occupied  my 
present  official  position,  and  occasional  visits  after- 
wards; always  with  increased  conviction  of  the 
ability  and  fidelity  with  which  the  directors  were 
discharging  their  important  trusts.  I regard  the 
president  as  emphatically  the  right  man  in  the  right 
place.  I wish  our  citizens  could  have  — as  inspectors 
of  course — a more  intimate  acquaintance  with  these 
institutions  than  they  have;  that  they  might  appre- 
ciate more  fully  than  I think  they  do  what  is  being 
done  and  what  should  be  done. 

The  policy  of  teaching  the  children  of  the  Reform 
School  mechanical  trades,  so  that  they  may  be  able  to 
support  themselves  when  they  leave  it,  has  been  rec- 
ognized, and,  to  a very  limited  extent,  adopted.  It 
should  be  pursued,  and  means  appropriated  for  the 
purpose,  not  only  for  the  benefit  of  the  childi*en,  but 
for  that  of  the  city. 

When  these  unfortunates  are  discharged  from  the 


42 


M A Y O ir  S A D D R ESS. 


Island,  and  landed  upon  the  wharf,  most  of  them 
are  homeless,  friendless,  and  penniless,  with 


“All  the  world  before  them  where  to  choose 
Their  place  of  rest,” 

like  the  exiles  from  Eden ; but  not  like  them,  — I 
fear,  — with  Providence  their  guide.” 

Their  forlorn  condition  is  made  more  wretched  by 
their  incompetency  to  earn  their  bread  by  the  prac- 
tice of  any  mechanical  pursuit.  We  can  easily  im- 
agine how  soon  idleness  leads  to  the  formation  of 
bad  habits,  and  want  to  crime.  What  suffering  and 
misery  might  be  averted  if  these  poor  waifs  could  be 
sent  from  the  school,  skilled  printers,  shoemakers, 
joiners,  and  other  handcraftsmen ! 

By  the  statutes  of  the  Commonwealth,  drunken 
and  disorderly  persons  are,  upon  conviction,  sent  to 
the  House  of  Industry;  but  the  terms  of  sentence 
are  so  short,  rarely  over  sixty  days,  that  little  or  no 
reformation  in  habits  and  character  can  be  effected. 
They  are  merely  improved  in  physical  condition, 
so  that  their  short  stay  at  the  Island  only  recruits 
them  for  a fresh  career  of  vice.  Some  of  them  have 
been  sentenced  fifty  times,  most  of  them  from  ten  to 
twenty  times. 

During  the  year  1878  there  were  5,053  commit- 
ments. Of  these  there  were  committed  for  the  first 


M A Y ( ) R ’ S ADDRESS. 


43 


time,  2,383;  for  the  second  time,  792;  for  the  third 
time,  545;  for  the  fourth  time,  375;  for  the  fifth  time, 
279;  for  the  sixth  time,  200;  for  the  seventh  time, 
157;  for  the  eighth  time,  117 ; for  the  ninth  time,  89; 
for  the  tenth  time,  78;  between  ten  and  twenty 
times,  436;  between  twenty  and  thirty  times,  119; 
between  thirty  and  forty  times,  33;  between  forty 
and  fifty  times,  40;  more  than  fifty  times,  10. 

Of  the  number  committed,  seventy-eight  per  cent, 
were  for  drunkenness;  three  per  cent,  for  being 
common  drunkards;  six  per  cent  for  larceny;  five 
per  cent,  for  assault  and  battery;  two  per  cent,  for 
vagrancy;  one  per  cent,  for  disturbing  the  peace; 
one  per  cent,  for  being  idle  and  disorderly;  four 
per  cent,  for  violation  of  city  ordinances.  As  the 
object  of  the  institution  is  the  reform  of  the  vicious, 
it  is  to  be  regretted  that  the  courts  cannot  keep 
them  there  until,  in  the  opinion  of  the  directors, 
reformation  has  been  accomplished,  or  for  such 
time  as  will  allow  opportunity  for  reform.  I under- 
stand that  in  other  States  there  are  statutory  pro- 
visions to  this  effect,  and  I suggest  to  you  whether 
application  should  not  be  made  to  the  Legislature 
for  a grant  of  like  powers  to  our  courts. 

The  Directors  of  Public  Institutions,  in  their  in- 
structive report  of  last  year,  suggest  ''  the  feasibility 
of  erecting  a suitable  building  at  the  Austin  Farm 


44 


MAYOR’S  ADDRESS. 


for  the  accommodation  of  the  pauper  girls  at  Deer 
Island,  and  their  remoyal  to  this  place.  This  plan 
will  provide  the  required  room  at  Deer  Island  for  the 
Truant  School,  and  bring  all  the  female  paupers,  with 
the  exception  of  those  at  Charlestown,  to  this  place.” 

There  ai*e  sixty-two  pauper  girls  now  at  the  Island. 
I commend  the  suggestion  to  your  consideration. 

It  was  expected  that  the  inmates  of  onr  Lunatic 
Hospital  would  he  transferred  to  the  Danvers 
Asylum  upon  its  completion,  and  the  former  insti- 
tution abolished ; but  the  directors,  in  their  communi- 
cation of  May  15,  1878,  to  his  Honor  Mayor  Pierce, 
on  this  subject,  have  demonstrated  so  fully  the  pro- 
priety and  necessity  of  retaining  the  hospital,  that  all 
who  read  it  must  adopt  its  conclusions. 

At  no  distant  day,  the  directors  say,  ''  the  present 
building  should  give  place  to  a new  and  more  ade- 
quate structure,  erected,  owned,  and  governed  by 
the  city  of  Boston  for  her  suffering  and  helpless 
patients.” 

POLICE  DEPARTMENT. 

In  compliance  with  the  suggestions  of  my  prede- 
cessor, the  control  of  the  police  — which  has  hith- 
erto been  vested  in  the  Mayor  and  Aldermen  — was, 
by  the  act  of  1878,  placed  in  a Board  of  Commis- 
sioners; the  duties  heretofoi*e  performed  by  the 


:\r  A y 0 K ’ s a d d r ess. 


45 


License  Commissioners,  and  the  power  to  license 
pawnbrokers,  auctioneers,  and  others,  who  require 
municipal  permission  to  carry  on  their  business  in 
this  city,  were  also  assigned  to  this  Board. 

It  is  well  known  that  there  was  much  difference  of  ’ 
opinion  with  our  citizens  in  respect  to  this  measure, 
and  I think  I do  not  mistake  the  facts  in  saying,  that 
political  considerations  had  great  and  controlling 
weight  in  determining  the  question. 

For  many  years  the  Mayors  of  Boston,  with  hardly 
an  exception,  have  spoken  in  commendation  of  the 
Police  Department  in  their  inaugural  remarks.  I 
think  the  citizens  have  felt  that  the  arduous  duties 
of  the  officers  have  been  well  done;  and  that,  in 
character  and  efficiency,  they  are  the  equals,  if  not 
the  superiors,  of  the  police  of  any  other  American 
city. 

It  is  to  be  hoped  that  the  radical  change  in  the 
control  of  this  dejDartment  will  prove  a wise  measure. 
There  are  certainly  some  defects  in  the  statute  ci’e- 
ating  the  commission,  which  should  be  remedied.  The 
power  of  removal  from  office  is  exclusively  given  to 
the  Board.'  The  Mayor  should  exercise  this  power, 
as  formerly.  The  charter  requires  him  ” to  be  vigi- 
lant and  active  at  all  times  in  causing  the  laws  to  be 
duly  executed  and  put  into  force,”  and  the  police  is 
one  of  the  instruments  given  him  for  the  purpose. 


46 


M A Y 0 R ’ S A ])  D R ESS. 


It  is  true  that,  by  the  act  of  1878,  he  has  the  power, 
in  any  emergency,  of  which  he  shall  be  judge,  to 
assume  command  of  the  whole,  or  any  part,  of  the 
police  force ; ” and  should  he  find  occasion  to  take 
such  command,  and  issue  orders  which  are  not 
obeyed,  he  has  no  power  of  dismissal.  He  must  in- 
voke the  aid  of  the  commissioners  for  this  purpose. 
It  is  obvious  that  cases  might  occur  when  the  delay 
caused  in  getting  action  from  the  Board  would  im- 
peril the  peace  and  safety  of  the  city. 

Other  deficiencies  in  the  act  might  be  pointed  out, 
which,  without  doubt,  will  be  seen  and  corrected  if 
the  commission  is  to  be  retained. 


The  commissioners  report  that  tlie  whole  number  of  licenses 
from  May  1,  1878,  to  Jan  1,  1879,  was 
Applications  (luring  this  lime  .... 

Number  of  liquor  seizures  ..... 

Gallons  liquor  seized  ...... 

Number  of  unlicensed  places  where  liquor  was  sold,  or 
suspected  of  being  sold  ..... 


issued 

2,023 

2,710 

600 


167 


The  commissioners  express  the  opinion  that  the 
laws  regulating  the  sale  of  intoxicating  licpiors,  as  at 
present  enforced,  are  more  efficacious  in  promoting 
the  cause  of  tempei*ance  than  the  prohibitory  enact- 
ments which  they  superseded. 

They  think  a police  force  of  seven  hundred  is  suf- 


I 


M A Y 0 R ’ S AD  D R ESS.  47 

ficient  for  the  work  of  the  department.  The  present 
number  is  seven  hundred  and  fifteen. 

The  police  expenditures  during’  the  last  nine 
months  were  $611,352.95,  leaving  a balance  of  $211,- 
647.05  to  cover  the  expenditures  of  the  remaining 
three  months  of  the  financial  year. 


FIRE  DEPARTMENT. 

The  work  of  the  Board  of  Fire  Commissioners 
appears  to  be  well  done,  and  I am  not  aware  that 
any  complaints  in  respect  to  the  department  under 
its  supervision  have  been  made.  I think  the  impor- 
tant changes  caused  by  the  creation  of  the  Fire  Com- 
mission are  thought,  upon  the  whole,  beneficial.  I 
would  invite  your  attention  to  the  cost  of  this  depart- 
ment. By  the  Auditor’s  report,  it  was  $575,686.82 
for  the  financial  year  ending  April  30,  1878,  — ,a  de- 
crease from  that  of  the  preceding  year  of  $20,157.35. 
Upon  a careful  examination  of  the  items  of  this  cost, 
I find  it  made  up  as  follows : — 


Expenses  and  salaries 
Fire-Alarm  Telegraph 
Bells  and  Clocks 
Repairs  of  Buildings  . 


$550,999  00 
18, UG  13 
2,481  25 
4,0G0  44 


»*S575,G8G  82 


48 


MAYOR’S  ADDRESS. 


I think  we  could  cut  down  the  costs  of  many 
of  the  items  which  make  up  these  sums,  without 
disturbing  salaries,  or  impairing  the  efficiency  of 
the  department.  I have  spoken  elsewhere  of  the 
cost  of  this  branch  of  the  municipal  service  in 
other  cities,  and  it  is  difficult  to  understand  why 
we  should  pay  so  much  more  than  our  neighbors 
for  protection  against  fire. 

LAMP  DEPARTMENT. 

The  Auditor  tells  us  that  the  whole  cost  of 
lighting  the  streets  of  the  city  during  the  last 
financial  year  was  $477,383.28,  against  $479,937.80 
in  the  previous  year. 

The  belief  is  so  general  that  the  expenses  of 
this  department  are  excessive,  that  I drew  the 
particular  attention  of  the  City  Council  of  1877 
to  this  subject,  both  in  my  inaugural  and  vale- 
dictory remarks;  and  I feel  it  my  duty  to  recur 
to  it  again,  and  ask  for  it  that  consideration  which 
its  importance  demands. 

We  contract  for  our  gas  at  a fixed  price  per 
lamp,  with  burners  warranted  to  consume  four 
feet  at  least  of  gas  per  hour.  It  has  been  thought 
that  we  not  only  ])ay  too  much  for  our  light, 
but  do  not  get  all  that  we  pay  for,  through  de- 


MAYOR’S  ADD  R ESS. 


49 


fects  in  the  burners.  But,  I find  upon  examining 
the  cost  of  gas  in  twenty  different  cities  of  the 
country,  that  we  pay  rather  less  than  most  of 
them,  in  view  of  the  excellent  quality  of  our 
article  ; and  I am  assured  by  ins])ection  of  the 
monthly  reports  made  to  the  treasurer  of  the 
Boston  Gas  Company  that  their  burners  consume 
on  the  average  rather  more  than  four  feet  an 
hour,  instead  of  less.  The  treasurer  offered  me 
every  facility  to  get  information  on  this  subject, 
and  it  appears  that  each  of  the  burners  of  his 
company  is  inspected  and  tested  by  the  engineers 
as  often  as  once,  at  least,  a year,  and  a record 
made  of  its  condition  and  burning  capacity. 

We  are  supplied  by  eight  different  companies, 
but  more  than  one-third  of  our  gas  is  furnished 
by  the  Boston  Gas  Light  Company.  I made  no 
inquiries  of  the  other  companies  ; but  I pi*esume 
my  remarks  touching  the  gas  and  burners  of  the 
Boston  Gas  Light  Company  will  equally  apply  to 
them  all. 

If,  then,  the  price  paid  for  gas  is  not  too  high, 
and  we  get  all  we  pay  for,  — and  there  seems  to 
be  no  doubt  of  this,  — the  question  arises,  whether 
we  cannot,  with  proper  regard  for  the  comfort  and 
safety  of  the  citizens,  reduce  the  illuminating 
power  of  our  lamps  by  the  use  of  burners  of 


50 


M A Y O E ’ S A D D R ESS. 


less  consuming  capacity,  or  content  ourselves  with 
fewer  lamps.  We  use  oil  lamps  in  certain  parts 
of  the  city  ; perhaps  we  could  use  more  of  those 
or  other  kinds  of  lamps,  with  economy,  and  it  may 
be  that  savings  can  be  made  in  other  expenditures 
of  this  department.  Something  can  and  should 
be  done  to  lessen  the  cost  of  lighting  this  city, 
greater,  as  I have  elsewhere  shown,  than  that  of 
any  other  of  its  size  in  the  country. 

BOAUD  OF  HEALTH. 

I find,  upon  inquiry,  that  the  Board  of  Health  have 
well  performed  their  important  duties  during  the 
yeai-.  Their  report  says  ''that  during  nine  months 
of  the  time  a systematic  inspection  has  been  made, 
not  less  than  twice,  of  every  court,  lane,  yard,  and 
alley  in  the  city;  and  of  every  tenement  house  not  less 
than  three  times.  Many  of  them  have  been  more 
frequently  examined.  The  remaining  three  months 
in  the  year,  which  is  the  hot  season,  the  officers  have 
been  engaged  in  investigating  complaints  made  at 
the  office,  which  are  so  numerous  as  to  require  their 
whole  time.” 

During  the  year  they  have  abated  twenty-one 
thousand  and  ninety-nine  nuisances,  inspected  and 
ordered  the  vacation  of  three  hundred  and  two 


M A Y O R ’ S A Y>  DRESS. 


51 


houses  and  cellars  as  unfit  for  occupation,  and  made 
forty-six  prosecutions  for  violation  of  our  sanitary 
ordinances. 

The  Board  has  for  several  years  urged  upon  the 
City  Council  the  abatement  of  the  Roxbury  Canal 
nuisance,  with  the  recommendation  that  it  be  filled, 
as  the  only  eftective  method  of  relief.  The  matter 
has  been  carefully  considered  by  difiei'ent  city  gov- 
ernments ; but  there  were  difficulties  which  pre- 
vented action,  not  easily  adjusted.  These  have  now 
been  removed,  and  I am  happy  to  say  that  last  year 
the  City  Council  voted  to  fill  the  canal.  The  work 
has  been  commenced,  and  will  soon  be  completed. 
This  is  matter  for  congratulation,  as  the  exhalations 
from  this  depository  of  filth  were  becoming  yearly 
more  intolerable,  and  threatened  serious  sanitary 
consequences. 

We  have  still  unabated  the  Stony-brook  and 
Muddy-river  sewer  nuisances.  It  was  my  hope  that 
the  order  passed  in  1877  for  the  improvement  of 
Stony  brook  would  have  accomplished,  by  this  time, 
what  was  so  desirable  in  this  respect;  but,  just  as 
the  work  was  commenciug,  it  was  discovered  that 
the  rights  of  the  Boston  Belting  Company  would  not 
permit  any  action  whatever  in  the  premises.  The 
City  Council  have  ordered  a petition  to  the  General 
Court  for  further  powers,  which,  without  doubt,  will 


52 


M A Y O R ’ S ADD  R ESS. 


be  granted,  when  the  proposed  remedial  work  will  be 
commenced  and  finished. 

It  was  expected  that  the  Mnddy-river  sewer  nui- 
sance would  have  been  abated  by  the  government  of 
last  year.  The  Legislature  of  1872  empowered  the 
city  to  unite  with  the  town  of  Brookline,  and  divert 
the  sewer-polluted  waters  of  Muddy  river  in  a more 
direct  line  to  Charles  river.  This  measure  was  rec- 
ommended by  the  Park  Commissioners  in  their  sixth 
report. 

Early  in  1878  the  town  of  Brookline  appointed  a 
committee,  with  authority  to  negotiate  with  the  city, 
for  the  construction  of  a new  channel  for  Muddy 
river,  so  that  the  same  may  be  kept  free  of  sewage, 
subject,  however,  to  the  confirmatory  action  of  the 
town.  This  committee  notified  the  Mayor  of  their 
appointment  on  the  30th  of  March,  who  sent  a 
message  in  relation  thereto  to  the  City  Council, 
by  whom  the-  matter  was  referred  to  the  Com- 
mittee on  Stony-Brook  Improvement.  IS^otwith- 
standing  several  efforts  on  the  part  of  the  Brook- 
line committee  to  come  to  a hearing  with  the 
Boston  committee  on  this  important  question,  the 
latter  were  unwilling,  for  some'  reason  not  appar- 
ent, to  consider  the  Mnddy-river  improvement  until 
the  matter  of  the  Stony-brook  impi’ovement  had 
been  first  disposed  of,  although  the  subjects  were 


MAYOR’S  ADDRESS. 


53 


wholly  distinct  from  each  other,  having  no  con- 
nection whatever. 

I trust  this  nuisance,  which  annoys  and  torments 
our  citizens  so  much,  will  receive  your  immediate 
and  earnest  attention  and  action. 

West  Roxbury  canal  filled,  Stony-brook  and 
Muddy-river  sewage  diverted  to  Charles  river,  and 
the  Baek  Bay  nastiness  buried  under  ten  feet  of 
gravel,  Boston  will  cease  to  be  the  rival  of  die 
city  of  Cologne,  so  long  noted,  if  I remember 
rightly,  for  its  fifty  and  seven  different,  distinct, 
individual,  intense,  mephitic  odors. 

CITY  CHAKTEK. 

I feel  it  my  duty  to  ask  you  whether  the  sub- 
ject of  a revision  of  the  City  Charter  should  not 
again  be  considered.  It  is  well  known  that  there 
has  been  for  a long  time  a growing  conviction 
in  the  public  mind  that  important  modifications 
are  required  to  adapt  our  charter  to  the  changed 
condition  of  the  city,  resulting  from  its  growth  in 
population,  territory,  and  wealth.  This  feeling  led 
to  the  appointment  of  a commission,  in  1873,  to 
consider  the  subject,  and  much  time  and  thought 
were  given  to  it. 

Although  the  reeommendations  of  the  commis- 
sioners were  not  adopted  by  the  City  Council, 


54 


MAYOR’S  ADDRESS. 


they  have  called  forth  criticisms  and  suggestions, 
which  must  he  valuable  when  the  subject  is  again 
considered. 

The  opinions  of  onr  citizens,  as  to  the  nature 
and  provisions  of  the  charter,  have  now  become 
so  well  known  through  the  discussions  elicited  by 
the  report,  that  I think  there  would  be  little  diffi- 
culty in  constructing  a scheme  which  would  be 
generally  satisfactory,  and  meet  the  approval  of  the 
Legislature. 

If,  however,  no  complete  and  comprehensive  re- 
vision of  the  charter  can  be  got  at  this  time,  we 
might  at  least  get  a digest  of  the  various  statutes 
affecting  the  city,  for  gi*eater  convenience  in  ascer- 
taining our  municipal  rights  and  obligations,  with 
a few  of  the  important  changes  in  our  charter, 
which,  it  is  generally  admitted,  should  be  made. 
I^eai*ly  one-fourth  of  the  City  Charter,  as  it  stands 
in  our  public  documents,  consists  of  sections  which 
have  been  amended  or  repealed  by  subsequent 
legislation.  An  act  codifying  the  scattered  re- 
mains of  this  instrument,  with  all  the  acts  relating 
to  the  same,  interwoven  therein,  with  the  changes 
referred  to,  so  as  to  give  us  our  chartered  powers 
in  connected  and  compact  form,  would  be  very 
convenient  and  desirable,  and,  without  doubt,  meet 
the  approval  of  the  Legislature. 


lAI  A Y O n ’ S A D DRESS. 


55 


ASSESSORS  DEPARTMENT. 

I submit  to  your  consideration  whether  there 
should  not  be  some  radical  changes  in  our  clumsy 
machinery  of  taxation.  We  have  a permanent  board 
of  five  assessors ; a board  of  thirty-three  first 
assistant  assessors,  and  a board  of  thirty-three  second 
assistant  assessors.  The  principal  assessors  and 
first  assistants  estimate  the  value  of  personal  prop- 
erty. The  first  assistants,  in  their  respective  dis- 
tricts, with  one  of  the  principal  assessors,  or  second 
assistant  assessors,  appraise  the  real  estate,  and 
take  the  list  of  the  polls  therein. 

These  assistants  are  chosen  annually  by  concur- 
rent vote  of  the  City  Council.  It  is  difficult  to 
believe  that  persons  competent  to  judge  the  value 
of  real  estate  can  be  obtained  by  annual  election. 
There  are  so  many  and  subtle  facts  and  circum- 
stances which  affect  such  value,  that  they  can  only 
be  recognized  and  appi*eciated  by  training  and  ex- 
perience. 

I would  suggest  the  establishment  of  a perma- 
nent Board  of  Assessors,  so  appointed  that  one  only 
shall  go  out  of  office  each  year,  foi*  the  valuation 
and  assessment  of  real  estate.  In  this  way  we 
should  always  have  the  services  of  experienced 
officers  for  this  most  important  duty.  The  valua- 


56 


MAYOR’S  ADDRESS. 


tion  of  personal  property  might  be  given  to  a 
special  board,  who  should  only  attend  to  this  duty. 
The  assessment  of  poll-taxes  might  be  made  by 
a third  class  of  officers.  While  the  strength  of 
political  parties  depends  to  any  extent  upon  the 
payment  of  poll-taxes,  the  assessment  of  such  taxes 
will  become  a political  question,  and  I think  the 
work  would  be  better  done,  and  more  to  the  satis- 
faction of  all  parties,  by  officials  charged  with  the 
sole  consideration  of  this  matter.  It  is  desirable 
that  the  assessors  of  personal  estate  should  be 
selected  for  their  capacity  to  perform  their  official 
duties  alone,  without  regard  to  politics. 

BOARD  OF  REGISTRATION  OF  VOTERS. 

All  citizens,  whatever  their  political  opinions,  will 
agree  in  this,  that  we  cannot  have  good  govern- 
ment, we  cannot  maintain  even  Republican  institu- 
tions, unless  the  rights  of  the  people  to  the  free  and 
unhindered  exercise  of  the  election  fi*anchise  are 
fully  protected.  If  fraud  is  allowed  to  subvert  the 
popular  will,  corrupt  rings  will  form  and  get  the 
ascendency,  bad  men  attain  office,  and  measures, 
destructive  to  the  best  interests  of  the  community, 
adopted.  We  cannot,  therefore,  guard  too  carefully 
the  ballot-box. 


A Y O R ’ S ADDRESS. 


57 


My  predecessor,  commendably  solicitous  in  this  re- 
spect, invited  in  his  imuigural  the  " serious  and  earn- 
est attention  of  the  Council’’  to  the  ''necessity  of 
procuring  some  special  enactments  relating  to  the 
registration  of  votei’S  and  the  methods  of  conduct- 
ing elections  in  this  city,”  as  the  laws  then  existing 
were  " clearly  insufficient  to  prevent  the  perpetration 
of  frauds.”  In  compliance  with  this  suggestion,  an 
act  was  obtained  from  the  Legislature,  correcting 
the  supposed  defects  in  registration,  and  providing, 
among  other  things,  for  the  establishment  of  several 
voting  pi*ecincts  in  each  ward,  so  that  the  citizens 
thereof  wei*e  not  confined  to  a single  voting  place  as 
heretofore.  Under  this  statute,  the  city  was  divided 
into  one  hundred  and  six  precincts.  We  have  had 
two  elections  since  the  law  took  effect,  and  I think 
its  provisions  are  generally  regai’ded  as  beneficial 
and  salutary.  Some  defects  are  apparent,  and  ex- 
perience will  suggest  modifications  which,  without 
doubt,  will  be  made. 

There  is  no  direct  authority  given  for  the  use  of 
precinct  lists,  and  the  question  has  arisen  whether 
the  law,  as  it  stands,  does  not  require  the  use  of 
ward  lists  as  hitherto.  JSTo  direction  is  made  that 
voters  shall  vote  in  the  precincts  in  which  they  are 
1‘egistei‘ed,  whether  they  continue  to  reside  or  not 
therein,  although  the  law  requires  them  to  vote  in 


58 


M xV  Y O R ’ S ADDRESS. 


the  ward  in  which  they  were  registered  on  the  first 
day  of  May.  The  Registrars  should  be  required  to 
hold  their  sessions  m each  ward,  and  not  ''in  or 
NEAR  each  ward,”  aud  the  sessions  of  collectors  of 
taxes  aud  registrars  should,  for  obvious  reasons  of 
convenience,  be  held  at  the  same  time  and  place  in 
the  several  wards. 

There  is  much  more,  however,  to  be  done  before 
we  can  have  all  the  safeguards  which  will  insure 
honest  elections.  Animated  by  the  same  anxiety 
as  my  predecessor,  I also  invite  "your  serious  and 
earnest  attention  to  the  necessity  of  procuring  some 
special  enactments  relating  to  the  conduct  of  elec- 
tions in  this  city,”  as  the  laws  in  force  still  appear 
" clearly  insufficient  to  prevent  the  perpetration  of 
frauds  whereby  the  will  of  the  people  may  be  de- 
defeated.” 

We  ought  not  only  to  see  that  those  who  are  en- 
titled to  vote,  and  only  those,  shall  vote,  but  we 
should  see  that  none  are  improperly  influenced  or  hin- 
dered in  the  free  exercise  of  this  right.  We  should 
see  that  there  is  no  corrupt  use  of  money  in  elec- 
tions. It  cannot  be  denied  that  everywhere  there 
is  great  cause  of  complaint  in  this  respect.  Permit 
me,  in  this  connection,  to  quote  the  recent  remarks 
of  a distinguished  senator  and  statesman. 

“ The  most  disheartening  thing,”  says  Judge  Thur- 


MAYOR’S  ADDRESS. 


59 


man,  to  an  American  who  loves  free  institutions,  is 
to  see  that  year  by  year  the  corrupt  use  of  money  in 
the  elections  is  making  its  way,  until  the  time  may 
come  when  elections  in  the  United  States  will  be 
debauched  as  ever  in  the  worst  days  of  the  old 
borough  parliamentary  elections,  in  the  mother  land. 
The  question  is,  whether  this  country  is  to  be 
governed  with  a view  to  the  rights  of  every  man,  — 
the  poor  man  as  well  as  the  rich  man,  — or  whether 
the  longest  purse  shall  carry  the  elections,  and  this 
be  a mere  plutocracy  instead  of  a democratic  Re- 
public.” 

It  has  been  charged,  and  very  generally  charged, 
that  in  the  recent  elections  in  this  city,  both  for  State 
and  city  officers,  the  employed  have  been  improperly 
influenced  by  the  employer,  — the  poor  man  in- 
timidated by  the  rich, — and  large  sums  of  money 
contributed  and  expended  for  the  purchase  of  votes. 


“If  it  be  true,  it  is  a grievous  wrong,”  — 

and  it  is  our  duty,  as  honest  and  ^^atriotic  citizens,  to 
do  all  in  our  power  to  reform  the  abuse,  AVe  have 
laws  specially  directed  against  such  frauds,  which 
would  seem  to  be  sufficient  for  their  prevention;  but 
if  the  complaints  referred  to  have  their  foundation 
in  truth,  either  further  legislation  should  be  had, 


60 


MAYOR’S  ADD  R E S S . 


or  greater  vigilance  in  enforcing  the  laws  already 
in  existence  exercised. 


INSPECTION  OF  BUILDINGS. 

The  statute  creating  this  important  department 
was  passed  in  1871,  and  is  entitled  An  Act  to' 
provide  for  the  regulation  and  inspection  of  build- 
ings, the  more  eftectnal  prevention  of  fire,  and  the 
better  preservation  of  life  and  property  in  Boston.” 

The  officers  of  this  department  are  a chief  in- 
spector, and  such  assistant  inspectors  as  the  City 
Council  may,  from  time  to  time,  determine.  Their 
duties  may  be  inferred  from  the  title  of  the  act 
creating  the  department. 

The  necessity  of  this  bureau  had  been  urged 
upon  the  City  Council,  several  years  before  its  or- 
ganization, by  the  Chief  Engineer  of  the  Fire  De- 
partment, in  his  annual  reports,  where  it  was  shown 
that  a large  percentage  of  fii*es  were  caused  by 
defective  construction  in  buildings. 

The  work  done  by  this  department  has  fully 
justified  its  establishment.  I find,  upon  inquiry, 
that  the  organization  is  excellent,  and  that  the 
officers  have  well  performed  their  duties  during 
the  year. 


MAYOR’S  ADDRESS. 


61 


CITY  HOSPITAL. 

The  city  was  authorized  by  statute  of  1858  to 
establish  a liospital  for  sick  persons  who  requii'e 
1‘elief,  and  the  City  Council  were  empowered  to 
appoint  trustees  and  other  officei's  to  manage  it. 
An  ordinance  was  passed  placing  the  institution 
under  the  direction  of  a Board  of  nine  Trustees, 
who  annually  elect  a SujDerintendent,  who  has  the 
control,  under  the  Board,  “ of  all  the  departments 
of  the  Hospital,  and  of  all  subordinate  officers, 
the  patients,  and  the  chai-ge  of  the  grounds, 
buildings,  and  appurtenances.” 

This  great  charity  is  one  of  the  most  impoit- 
ant  of  oiu-  civic  institutions.  Its  records  show 
that  it  has  alleviated  a vast  amount  of  suffer- 
ing, and  accomplished  a vast  amount  of  good. 

We  may  form  some  opinion  of  its  usefulness 
from  the  number  of  patients  it  has  received,  cui’ed 
and  discharged  within  the  year  ending  April  30, 
1878,  the  date  of  the  last  Report  of  the  Trus- 
tees: — 

Number  of  patients  in  Hospital  April  30,  1877  . . 300 

Number  admitted  during  the  3’ear : — 

Medical  patients  . . . 2,415 


Carried  forivard 


2,415 


300 


62 


MAYOR’S  ADDRESS. 


Brought  fortvard  ..... 

2,415 

300 

Surgical  patients 

1,526 

Ophthalmic  “ ... 

93 

4,034 

Treated  during  the  }^ear  . 

. 

4,334 

Discharged  .... 

3,715 

Died  ..... 

311 

— 

4,026 

Remaining*  in  Hospital  April  30,  1878  . . . 308 


Number  of  patients  treated  in  the  out-patient 

department . 9,658 

Number  of  visits  to  the  Hospital  . . . 30,135 


. The  cost  of  maintaining  the  Hospital  during  the 

3*ear  was  .......  $120,757  92 

Paid  by  patients  . . . . . . 8,136  86 


Cost  of  city  for  treating  4,063  non-paying  patients  $112,621  06 


The  Trustees  assure  us  in  their  last  report  that  the 
labors  of  the  medical  and  surgical  staff  have  been 
faitlifnl  and  invaluable,”  and  that  the  management  of 
the  able  Superintendent  has  been  intelligent  and  effi- 
cient. They  commend,  also,  the  other  officers  of  the 
hospital  for  the  faithful  performance  of  their  duties. 

I am  informed  by  those  interested  in  the  success  of 


MAYOR’S  ADDRESS. 


63 


this  charity,  and  competent  to  understand  its  wants 
and  recjuirenients,  that  its  interests  would  be  greatly 
promoted,  and  its  capacity  for  usefulness  largely  in- 
creased, if  it  was  incoi-porated  like  the  Public  Library 
and  the  Overseers  of  the  Poor,  and  possessed  the 
powers  enjoyed  by  these  bodies. 

The  trustees  of  the  Hospital  are  nine  in  number, 
and  annually  elected  ; three  from  the  City  Council, 
to  serve  one  year,  and  six  from  the  citizens  at  large, 
to  serve  three  years.  From  1863  to  1878  thei’e  have 
been  fifty  trustees  who  have  been  thus  elected. 
Nineteen  have  served  one  year;  nine,  two  years; 
eight,  three  years;  four,  four  years;  three,  five  years; 
three,  six  years;  two,  seven  years;  one,  eight  years; 
and  one,  nine  years.  It  is  almost  impossible  that 
the  three  who  are  annually  elected  from  the  City 
Council  can  give  much  time  or  attention  to  the 
direction  of  the  Hospital,  when  they  have  so  many 
municipal  duties,  besides  their  private  business,  to 
attend  to;  nor  can  it  be  expected  that  the  City 
Council  will  furnish,  every  year,  suitable  persons  for 
this  important  trust.  If  the  Hospital  were  incorpo- 
rated, trustees  could  be  selected  with  more  regard 
to  their  competency,  and  corporate  powers  would 
enable  them  to  manage  the  institution  more  effi- 
ciently. 

Chartered  with  the  power  to  hold  real  and  perso- 


64 


M A Y 0 K ’ S ADDRESS. 


nal  estate,  it  would  be  likely  to  receive  donations  and 
bequests  from  our  citizens,  and  it  could  bettei*  hold 
and  manage  the  funds  ali-eady  given  for  its  benefit, 
now  six  in  number,  and  aggregating  twenty-nine 
thousand  dollars;  to  which  will  be  hereafter  added 
the  legacy  of  Dr.  Silas  Durkee  (subject  to  the  life 
estates  of  his  widow  and  her  sister),  amounting  to 
about  sixty  thousand  dollars. 

# 

I might  mention  other  advantages  to  be  derived 
from  the  proposed  change  in  the  organization  of  this 
institution,  but  they  will  occur  to  you  if  you  give  the 
subject  the  consideration  which  it  should  receive. 

In  closing  the  last  inaugural  address  I shall  ever 
have  the  honor  to  make  to  the  City  Council  of  Boston, 
let  me  congratulate  you  and  your  constituents,  that 
we  are  commencing  the  new  year  under  pleasing 
auspices.  For  the  first  time,  for  seventeen  years, 
this  countiy  has  reached  specie  payments.  Believing, 
as  I do,  that  the  long-continued  and  unprecedented 
depression  in  every  branch  of  business  may  be 
traced,  for  the  most  part,  to  the  issue  of  incon- 
vertible ])aper  money,  now  that  we  have  returned 
to  the  only  curi’ency  recognized  by  the  commercial 
world  as  unfluctuating  and  reliable,  we  may  expect  the 
most  salutary  lesidts  from  the  new  departure.  Con- 
fidence, a most  important  factor  in  recuperation,  is 
beginning  to  permeate  the  public  mind,  and  under  its 


MAYOR’S  ADDRESS. 


65 


benign  influence  the  pleasing  signs  of  improvement 
are  dawning.  The  vast  resources  of  the  Republic, 
and  our  enormous  exports,  will  guarantee  the  contin- 
uance of  the  golden  stream;  and  when  our  people 
shall  be  assured,  as  soon  they  will  be,  that  there  is  to 
be  no  financial  retrocession,  we  may  look  for  com- 
plete revival  in  all  our  industries,  mechanical,  man- 
ufacturing, agricultural,  and  commercial.  Then  will 
the  w^arehouses  of  this  city  be  reoccupied;  those 
ominous  notices,  To  Let,”  which  for  the  last 
lustrum  have  been  posted  so  thickly  over  our 
business  streets,  remitted  to  the  limbo  of  things 
which  were  and  are  not;  and  our  beloved  Boston, 
l)usy  and  prosperous  from  its  restored  commerce, 
resume  its  place  among  th^  leading  cities  of  the 
country. 


% 


APPENDIX. 


CITY  DEBT  STATEMENT. 


Total  funded  debt  for  negotiated  loans  of  all  kinds 


on  Dec.  31,  1878  . . . . 

Loans  not  negotiated  : — 

English  High  and  Latin  School 

$41,809,583  31 

Buildings  ..... 

$75,000  00 

Improved  Sewerage  .... 

3,337,000  00 

Stony  Brook  Improvement 

133,000  00 

Widening  Commercial  street  . 

500,000  00 

Roxbury  Canal  Improvement  . 

41,000  00 

4,086,000  00 
$45,895,583  31 

The  water  loans  are  as  follows 

: — 

Cochituate  Water  Loans  . 

$11,763,273  98 

Mystic  Water  Loans 

1,228,000  00 

$12,991,273  98 

Total  of  all  loans  except  water  loans  . 

$28,818,309  33 

The  means  on  hand  for  paying  water  loans  are  : — 

Sinking  funds 

$2,106,783  00 

Bond  for  sale  of  land  . 

2,702  00 

$2,109,485  00 

Means  for  paying  loans  other  than  water  loans : — 

Sinking  funds 

$13,157,138  36 

Bonds  for  sales  of  land,  etc.  . 

358,788  53 

— 

$13,515,926  89 

Total  amount  of  sinking  funds  and  other  means 


to  pay  debt $15,625,411  89 


68 


APPENDIX. 


WATER  ACCOUNT. 

Total  cost  of  Cocliituate  water  to  Dec.  31,  1878  . $15,796,012  68 

Cost  of  Mystic  water  to  Dec.  31,  1878  . . . 1,228,000  00 

$17,024,012  68 

Total  amount  of  Cocliituate  Water 

debt  on  Dec.  31,  1878  . . $11,763,273  98 

Amount  of  Mj^stic  Water  debt  on 

Dec.  31,  1878,  including  Mystic 

sewer 1,228,000  00 

$12,991,273  98 


Gross  income  of  Cocliituate  Water 

Works  for  1878  ....  $1,083,612  26 

Expenses  of  same,  including  in- 
terest for  1878  . . . . 1,055,678  29 

Net  income  for  1878  $27,933  97 

Gross  income  of  Mystic  Water  W orks 

for  1878  $272,061  41 

Interest  and  expenses  . . . 197,564  99 

74,496  42 
$102,430  39 


Net  water  income 


INAUGURAL  ADDRESS 

O F 

FREDERICK  0.  PRINCE, 

MAYOR  BOSTON,  j 

1 

TO  j 

t 

j 

THE  CITY  COUNCIH  i 


JANUARY  12,  1880. 


BOSTON: 

ROCKWELL  AND  CHURCHILL,  CITY  PRINTERS, 

No.  39  ARCH  STREET. 

1 8 8 0. 


THE 


INAUGURAL  ADDRESS 

OF 

FREDERICK  0.  PRINCE, 

MAYOR  OF  BOSTON, 


THE  CITY  COHNCIL, 

JANUAKY  'l2,  1880. 


BOSTON : 

ROCKWELL  AND  CHURCHILL,  CITY  PRINTERS, 

No.  39  ARCH  STREET. 

1 8 8 0. 

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CITY  OF  BOSTOY. 


In  Common  Council,  January  12,  1880. 

Ordered^  That  His  Honor  the  Mayor  be  requested  to 
furnish  a copy  of  his  address,  that  the  same  may  be 
printed. 

Sent  up  for  concurrence. 

HARVEY  N.  SHEPARD, 

President. 


In  Board  of  Aldermen,  January  12,^1880. 


Concurred. 


HUGH  O’BRIEN, 

Chairman. 


ADDRESS. 


Gextlemen  oe  the  City  Council  : — 

We  have  been  called  by  our  fellow-citizens  to  ad- 
minister the  Municipal  Government  for  the  ensuing 
year.  It  is  a solemn  trust.  When  it  is  remembered 
that  Boston  has  a population  of  nearly  four  hundred 
thousand,  a tax  valuation  of  more  than,  six  hundred 
millions,  — notwithstanding  the  great  depreciation  of 
all  property  at  the  last  appraisement,  — and  that  the 
civic  service  now  requires  the  annual  exp3iiditure 
of  more  than  eight  millions,  we  can  recognize  the 
gravity  of  our  responsibilities. 

]STor  have  we  the  care  of  the  material  interests  of 
Boston  only.  We  are  intrusted,  for  the  time  being, 
with  its  good  name,  its  reputation,  and  its  honor. 
Of  these  the  citizens  are  justly  proud,  and  will 
expect  us  to  Avatch  Avell  that  they  are  maintained 
in  all  their  integrity. 

Boston  occupies  a high  position  among  the  cities  of 
the  country.  It  is,  in  some  respects,  regarded  as  a 
model  city,  as  it  receives  constant  ajiplications  for 
information  touching  its  management  of  munici])al 
mattei's  and  its  administrative  methods.  Its  financial 


6 


M A Y O R ’ S ADDRESS. 


credit,  at  home  and  abi*oad,  is  l^eyond  question.  The 
reputation  of  its  merchants  and  lousiness  men  for 
intelligence,  liberality,  and  honest  dealing,  is  world- 
known.  I venture  the  assertion  that  there  is  no 
community,  on  either  side  of  the  Atlantic,  where 
there  is  more  respect  for  moral  worth,  a higher  ap- 
preciation of  the  Christian  virtues,  or  a greater 
demand  for  the  exhibition  of  the  Christian  spirit 
by  the  citizens  in  their  daily  life,  especially  by 
those  who  seek  the  esteem  of  tlieir  fellow-citizens 
or  aspire  to  public  office. 

The  history  of  the  progress  of  moral  ideas,  of  the 
development  of  those  social  reforms  which  attest  the 
progress  of  civilization,  of  the  establishment  of  be- 
nevolent, correctional,  eleemosynary,  and  educational 
institutions,  of  the  growth  of  those  political  ideas 
whicli  have  established  republican  governments, 
(ainnot  he  written  without  reciting  the  history  of 
Boston. 

Let  us  ever  keep  before  us  in  all  our  official  doings 
this  record  of  honor  and  gloiy.  Whatever  the  inter- 
ests of  the  city  require,  whatever  its  credit,  safety, 
and  })rosperity  demand,  let  us  be  watchful  to  do,  to 
the  extent  of  our  lawful  powers.  Oiir  constituents 
will  ex[)ect  the  observance  of  a wise  and  judicious 
economy  in  all  our  municipal  expenditures.  We 
shall  be  found  unfaithful  stewards  of  our  trusts  if 


]\r  A Y 0 ir  S ADDRESS. 


i 


this  ex23ectation  is  not  made  the  inspiration  and 
guide  of  onr  offieial  conduct. 

I have  spoken  of  a wise  and  jndieions  economy.  I 
do  not  mean  by  this  a niggard  economy.  I am  no 
advocate  of  the  penny- Avise  and  pound-foolish  econ- 
omy,— especially  in  the  management  of  public  affairs. 
If  onr  mnnicipal  expenditures  in  the  past  had  been 
limited  to  things  Avhieh  are  merely  necessary^  Boston 
Avonld  not  be  the  city  it  noAV  is,  — and  if  there  is  to  be 
such  limitation  in  the  future,  it  A\dll  ncA^er  be  a\  hat  Ave 
desire  it  shall  become. 

Posterity  has  its  rights  as  Avell  as  Ave  of  the  present. 
'Duty  requires  ns  to  assume  reasonable  burdens  for 
the  benefit  of  those  AAdio  come  after  ns.  AVere  it 
otherAvise,  no  eonnnnnity  could  liaA^e  those  splendid 
municipal  accommodations  and  benefits,  AAdiich  are  not 
and  can  ncA^er  be  had  immediately,  since  they  require 
years  for  maturity  and  fruition.  The  enjoyments  of 
the  shade  tree  could  ncA^er  be  knoAA  n by  onr  children 
if  AA'e  refused  to  plant  it  because  aa^c  onrseh'es  cannot 
liA^e  to  see  its  branches  groAV  and  expand.  Be  assured 
that  the  generation  AAdiich  succeeds  ns  Avill  bless  and 
honor  those  aaIio  make  sacrifices  for  their  benefit. 
"We  should,  hoAA  CA^er,  exercise  a sagacious  and  dis- 
criminating judgment  in  i*espect  to  those  measures 
AAdiich  concern  the  prosperity  of  onr  beloA^ed  city. 
"We  should  be  as  firm  and  courageous  in  making  all 


8 


MAYOR’S  ADDRESS. 


2^roper  expenditures,  as  we  should  he  fii-m  and  reso- 
lute in  resisting  all  improper  expenditures.  We  shall 
not  fully  discharge  our  trusts,  nor  have  we  the  right 
to  he  here,  if  we  ignore  this  duty  through  the  fear  of 
temporary  unpopularity,  the  pressure  of  private  in- 
terests, the  importunity  of  sectional  influences,  or  the 
demands  of  party  politics. 

We  have  just  erected  a statue  to  commemorate  the 
municipal  services  of  our  best  and  wisest  Chief 
Magistrate,  Josiah  Quincy;  let  us  imitate,  as  far  as 
we  eau,  his  sagacious  forecast  and  intelligent  recog- 
nition of  the  interests  of  the  present  and  the  rights 
of  the  future,  and  we  shall  be  certain  to  act 
wisely. 

Whenever  there  is  complaint  of  municipal  extrava- 
gance the  Mayor  is  the  object  of  censure;  yet  such 
is  the  limitatiou  of  his  power  and  influence,  under  our 
system,  that  the  City  Council  is  in  fact  the  responsible 
party.  The  Mayor  cannot  draw  a dollar  from  the 
treasury  for  any  civic  purpose  without  the  consent  of 
the  Council.  Tlie  law  directs  the  Mayor,  to  quote  the 
words  of  the  charter,  ''To  communicate  to  both 
branches  of  the  City  Council  all  such  information, 
and  recommend  all  such  measures,  as  may  tend  to 
the  improvement  of  the  flnanccs,  the  police,  health, 
security,  cleanliness,  comfort,  and  ornament  of  the 
('ity;’’  hut  tlie  wisdom  oftlie  Council  determines  as  to 


MAYOR’S  ADDRESS. 


9 


the  adoj^tioii  of  these  measures,  and  the  action  to  l)e 
had  therein. 

The  functions  of  the  Mayor  in  respect  to  the 
inauguration  of  civic  measures  are  merely  advisory. 
He  has,  it  is  true,  the  veto  power;  but  when  the 
Council  by  a two-thirds  vote  orders  any  matter,  it 
becomes  the  duty  of  the  Executive  to  see  that  the 
will  of  the  Council  is  obeyed.  He  has  no  discretion 
in  the  premises. 

Let  us  consider  all  the  business  which  comes  before 
us  on  its  true  merits,  without  regard  to  unrelated  or 
irrelevant  considerations ; and  especially  let  us  apply 
this  rule  to  whatever  affects  the  finances  of  the  city, 
that  its  credit,  which  is  its  life,  may  not  suffer. 

Foidunately  for  Boston,  party  politics  have  thus  far 
never  interfered  with  its  finances.  The  record  will 
vindicate  the  assertion  that  no  measures  affecting 
the  treasury,  no  measures  calling  for  expenditures, 
have  ever  been  adopted  by  a strict  party  vote,  so  that 
they  could  be  said  to  be  party  schemes,  whether 
the  administration  was  Kepublican,  Democratic,  or 
Citizen.  \ 

The  municipal  election,  like  most  elections,  is  often 
marked  by  great  excitement,  and  opposing  j^arties 
indulge  in  mutual  vituperation,  in  charges  of  short- 
comings and  wrong-doings,  of  partisan  removals  from 
and  appointments  to  office;  but  no  party  has  ever 


10 


M A Y 0 K ’ S A D 1)  R E S 8 . 


charged  another  with  spending  the  public  moneys  for 
partisan  purposes. 

The  city  has  expended  vast  sums  for  municipal 
ol)jects, — for  widening  and  laying  out  streets,  for 
])nblic  buildings,  school-houses  and  bridges,  for 
sewers,  for  charitable,  benevolent,  and  educational 
o])jects,  foi*  commons,  and  scpiares,  and  parks,  and 
ornamentation ; but  the  appropriations  for  these  have 
never  l3een  passed  by  party  votes.  Whatever  com- 
plaints may  have  been  made  by  the  citizens  against 
the  measures  of  different  administrations,  no  such 
indictment  has  ever  been  found.  I may  be  permitted 
to  say  further,  in  this  direction,  that  although  munici- 
pal extravagance  has  been  sometimes  charged,  no 
allegation  of  corruption,  so  far  as  I know  the  facts, 
has  ever  been  made  against  any  Boston  city  official. 

All  this  is  matter  of  congratulation.  May  it  always 
be  thus.  May  the  integrity  and  honesty  of  our 
municipal  service  be  ever  maintained,  whatever  the 
political  complexion  of  the  administration.  If  parties 
at  the  city  election  contend  for  the  government,  let  ns 
hope  that  tlie  cont(‘st  will  l)e  limited  to  the  acquisition 
of  office,  and  that  the  victors  in  the  future,  as  in  the 
past,  will  ignore  party  interests  in  the  disbursements 
of  the  pnljlic  moneys,  and  administer  the  government 
l<)i*  the  benefit  of  all  the  citizens. 

It  is  fortunate  for  the  city  that  the  Council  has  so 


MAYOR’S  ADDRESS. 


11 


many  experienced  members.  Eleven  of  the  Aldermen 
have  served  before  — eight  of  them  in  that  Board. 
Fortv-seven  of  the  Common  Council  have  served 
before,  of  whom  forty-live  were  members  of  that  body 
last  year.  The  knowledge  thus  obtained  will  greatly 
facilitate  the  business  of  the  year.  Thus  the  interests 
of  the  city  and  your  own  convenience  are  alike  pro- 
moted. The  reelection  of  so  many  of  the  Council 
of  last  year  is  evidence  that  the  citizens  approve  their 
record.  It  is  to  be  regretted  that  the  knowledge  of 
civic  affairs  attained  by  official  experience  is  not 
oftener  considered  in  selecting  candidates  for  the 
Council.  As  Councihnen  are  elected  annually,  a large 
part  of  the  year  is  often  spent  in  getting  the  infor- 
mation necessary  for  the  proper  discharge  of  official 
duties. 

You  are  also  to  be  congratulated  that  the  Govern- 
ment of  last  year,  with  commendable  fidelity,  disposed 
by  action  on  its  merits  of  nearly  all  the  business  which 
came  before  it,  without  resorting  to  the  somewhat 
common  l)ut  improper  habit  of  clearing  the  docket  l)y 
the  reference  of  important  matters  to  the  next  Coun- 
cil. Let  me  express  the  hope  that  you  will  imitate 
this  good  example. 


12 


MAYOR’S  ADDRESS. 


CITY  DEBT. 

The  solicitude  of  the  citizens  touching  the  munic- 
ipal debt  is  always  active,  for  they  not  only  know 
that  all  their  property,  real  and  personal,  is  held  as 
security  for  its  ultimate  payment,  but  that  the  annual 
taxation  to  meet  the  interest  on  the  debt  and  the  per- 
centage required  by  law  for  the  sinking  funds  must 
increase  as  the  debt  increases. 


THE  CITY"  DEBT. 


The  gross  funded  debt  of  the  city  on  31st  of  De- 
cember, 1879,  was  . . . . . 


The  sinking  funds  for  its  payment  on  31st  of  De- 


cember, 1879,  were:  — 

Old  sinking  fund 
Consolidated  street  improvement. 
Burnt  District 

New  ..... 

Cochituate  water 

M}  Stic  water  .... 

Moneys  for  reduction  of  debt. 


$8,099,479  57 
1,280,917  14 
1,539,464  26 
3,201,383  69 
2,196,841  49 
257,118  38 
975  87 


$16,576,180  40 

Other  available  means  — bonds 
and  mortgages,  from  sales  of 
public  lands,  and  street  im- 
provement bonds  . . . 348,852  75 


If  we  deduct  the  above  from  the  gross  debt,  we 
may  call  tlie  net  debt  of  the  city 
Tills  net  debt  includes  the  Co- 

chituate  water  debt  . . $12,101,273  98 

Ylystic 1,153,000  00 


Deducting  this  water  debt,  we  have  as  the  city 
debt,  exclusive  of  water  debt  .... 


$43,022,816  20 


$16,925,033  15 
$26,097,783  05 


$13,254,273  98 
$12,843,509  07 


MAYOR’S  ADDRESS. 


13 


I deduct  the  water  debt,  because  in  a certain  sense 
it  may  not  be  regarded  as  a liability,  as  the  net  in- 
come of  the  water  department  in  1879,  after  paying 
interest  on  the  funded  debt  and  expenses,  was  $245,- 
730.78,  as  shown  by  the  report  of  that  Board. 

In  addition  to  the  sinking  funds  and  available 
means  for  paying  the  city  debt,  amounting  as  above 
to  $16,925,033.15,  there  are  public  lands  and  build- 
ings not  wanted  for  municipal  purposes  which  can  be 
sold  and  the  proceeds  applied  to  the  debt.  They  are 
valued  by  the  Assessors  at  $1,626,800.00.  I append 
hereto  a schedule  of  this  property,  and  shall  have 
occasion  to  refer  to  it  again  in  another  part  of  my 
remarks. 

As  I have  had  during  the  year  last  past  many  in- 
quiries touching  the  amount  of  the  city  debt  falling 
due  each  year,  I append  also  hereto  a memorandum 
hereof;  also  an  account  of  the  debt  to  be  redeemed 
by  each  sinking  fund.  On  1st  January,  1880,  the 
following  debt  matured  and  was  paid:  — 

Cit}^ $2,910,450 

Cochituate  water  . . ’ . . . . . 700,000 

$3,010,450 

The  average  rate  of  interest  on  the  total  funded  debt  during  the 
last  ten  years  was  5 718-1000  per  cent. 

The  following  loans,  authorized  but  not  yet  negotiated  or  issued, 
are  to  be  hereafter  added  to  the  city  debt : — 


14 


MAYOK’S  ADDRESS. 


English  High  and  Latin  School  buildings,  order  of 

Ma^^  25,  1877  

Roxbniy  canal  improvement,  order  of  July  16,  1878, 
Northampton-street  District,  order  of  April  26,  1879, 
Widening  of  Commercial  street,  order  December  31, 

1879  

Widening  South  street,  order  December  27,  1879, 
Extension  of  Commonwealth  avenue,  order  December 

27, 1879  

Improved  sewerage,  August  9,  1879 


$75,000 

41.000 

241.000 

50.000 

140.000 

135.000 
2,306,000 


$2,988,000 


As  the  law  does  not  permit  the  city  to  increase  its 
debt  beyond  three  per  cent,  of  its  valuation  on  the 
first  of  May,  1879,  it  is  proper  that  I should  inform 
yon  that  we  are  within  $1,234,608  of  this  limit.  It 
will  thus  be  seen  that  we  cannot  at  this  time  enter 
into  any  municipal  expenditures  requiring  more  than 
this  amount  unless  we  raise  such  excess  by  taxation ; 
yet  we  have  many  pressing  wants.  I feel  it  my  duty 
to  refer  to  one  of  them  at  least.  We  need  better  ac- 
commodations for  oiir  courts.  For  some  years  the 
Bench,  the  Bar,  and  those  who  have  business  at  the 
Court  House,  have  complained  that  it  is  wholly  iin- 
suitabie  for  the  purposes  for  which  it  was  erected. 
These  complaints  increase  daily  in  force  and  extent. 
They  cannot  be  ignored  much  longer.  We  must 
eitlier  enlarge  the  present  building  or  erect  a new  one. 
It  seems  to  be  the  opinion  of  those  best  qualified  to 
judge,  that  it  would  be  unwisdom  to  enlarge,  because 


MAYOE’S  ADDKESS. 


15 


the  lot  is  too  small  to  give  all  the  accommodatioii 
now,  or  soon  to  be,  wanted;  that  true  economy  re- 
quires a new  strnctnre  in  another  locality,  where  the 
necessary  space  conld  be  had.  To  accomplish  this 
Avonld  compel  a debt  beyond  onr  power  to  incur.  I 
had  hoped  that  the  scheme  of  erecting  court  accom- 
modations for  the  criminal  business  on  a portion  of 
the  estate  near  City  Hall,  known  as  the  ”!Xiles  Es- 
tate,” and  the  alteration  of  the  present  Court  House 
to  accommodate  the  civil  business  exclusively,  might 
have  supplied  all  that  was  wanting  in  this  matter  for 
some  years,  so  that  the  erection  of  a new  and  costly 
Court  House  mig;ht  be  postponed  to  a more  nnindebted 
season,  if  such  a financial  millennium  is  ever  to  come ; 
but  the  pi’oject,  although  favored  at  first  by  the 
Council,  did  not  receive  the  approval  of  those  whose 
opinions  were  entitled  to  weight,  and  was  subsequently 
abandoned. 

A Court  House  should  be  built  in  a central  locality. 
Such  a site  would  be  very  costly.  Its  construction, 
with  all  the  conveniences  now  thought  necessary, 
must  require  large  sums,  and  millions  would  be  re- 
quired before  the  work  would  be  completed. 

I am  unable  to  see  where  we  can  get  the  means  for 
this  purpose  at  the  present  time,  unless  we  apply  to 
the  Legislature  for  authority  to  exceed  the  limit  im- 
posed by  law  on  the  municipal  debt.  This  expedient 


16 


MAYOR’S  ADDRESS. 


would  not  and  should  not  be  approved  by  our  tax- 
payers, and  I cannot  recommend  its  adoption. 

It  has  been  suggested,  that,  as  land  is  now  cheap, 
it  would  be  good  policy  to  purchase  what  is  required 
for  a Court  House  before  real  estate  appreciates  with 
the  revival  in  business,  and  postpone  building  to  a 
future  day.  There  are  but  few  unimproved  sites, 
which  in  size  and  location  would  be  suitable  for  the 
piuq3ose ; and  if  we  longer  delay  action  in  the  matter 
the  cost  of  the  land  may  be  greatly  increased.  But 
this  is  a matter  over  which  the  Board  of  Aldermen, 
acting  as  County  Commissioners,  have  exclusive  con- 
trol, and  my  duty  therein  is  fully  discharged  when  I 
direct  their  attention  to  it.  I will,  however,  observe 
that  the  powers  given  them  under  the  act  authoilzing 
the  taking  of  land  for  a Court  House  have  been  ex- 
hausted, and  it  will  be  necessary  to  get  from  the  Leg- 
islature further  authority  if  they  propose  at  this  time 
any  action  in  the  premises. 


Watck  Dp:partment. 

The  net  cost  of  the  Cochituate  Water  Works  to 

January  1,  1880,  w-as  . . . .'  $10,268,397  90 

Amount  at  that  date  of  the  Cochituate  water 

del)t  . . • $12,101,273  98 

The  ^ross  income  for  1879  . . . . $1,071,901  37 


MAYOR’S  ADDRESS. 


17 


The  net  income  for  1879,  after  paying  — 


Current  expenses 

$176,578 

19 

Interest  on  loans 

623,705 

71 

Extension  .... 

53,433 

39 

Mystic  Water  Works  on  ac- 

count East  Boston  con- 

tract .... 

25,886 

69 

$879,603 

98 

Net  income 

192,297 

39 

$1,071,901 

37 

Mystic  Water  Works. 

Cost  of  construction  of  works  to  date,  including 


Mystic  sewer 
M}^stic  water  debt 
Gross  income  .... 
Current  expenses 
Extension  of  works  paid  out  of 
income  .... 
Interest  on  loans 
Chelsea,  Somerville,  and  Everett 
contracts  .... 

Net  income  for  1879  . 


$1,594,754  09 
1,153,000  00 
242,428  28 

$106,992  28 

18,910  56 
65,817  50 

24,247  79 

215,968  13 

$26,460  15 


The  report  from  the  Water  Department  shows  that 
its  affairs  are  in  a satisfactory  condition.  The  new 
supply  works  are  practically  finished,  and  have  been 
used  for  direct  supply  from  Sudbury  river  during*  the 
past  year.  Most  of  the  claims  for  damages  have  been 


18 


M A Y O R ’ S A 1)  DRESS. 


settled.  The  Board  have  advised  an  additional  main 
from  Chestnut  Hill  reservoir  to  the  city  proper  for  the 
relief  of  the  low  service,  and  they  represent  that  the 
rapid  increase  of  consnmption-  from  the  • high  service 
will  require  the  building  of  new  high-service  works. 

For  a long  time  great  and  well-founded  complaint 
has  been  made  of  the  impurity  of  the  Mystic  water. 
During  the  last  summer  it  was  unfit  for  use,  and  the 
government  was  gi^eatly  exercised  to  discover  and 
relieve  the  causes  of  this  impurity.  Some  of  them, 
without  doubt,  were  found  in  the  polluting  drainage 
of  the  tanneries  of  AVobnrn  and  Winchester,  and  the 
sewage  of  many  of  the  houses  of  these  towns,  that 
flowed  into  the  streams  feeding  Mystic  pond,  from 
which  the  water  is  taken.  Eight  of  these  tanneries 
and  nineteen  of  these  houses  now  drain  into  the 
Mystic  sewer,  and  it  is  believed  much  of  the  mischief 
has  been  ol)viated,  and  that  the  Mystic  water  will 
i*egain  to  a large  extent  its  former  excellent  quality 
and  character. 

We  have  in  the  water  basins  at  Framingham  a 
large  siq^ply  of  loam,  which  should  be  removed,  to 
])revent  injury  to  the  water  to  he  stored  there.  It 
will  l)e  wanted  in  the  constrnction  of  the  Back  Bay 
j)ai’k,  and  save  the  necessity  of  buying  soil  elsewhere. 
An  order  f'oi*  its  removal  ])assed  the  Board  of  Aider- 
men,  l)ut  it  failed  to  receiA^e  the  concurrence  of  the 


M A Y UR’S  A D D K E S S . 


19 


lower  branch  of  the  Council,  and  I advise  your  early 
action  in  the  matter.  The  tilling  of  the  park  ad- 
vances, and  we  shall  soon  need  the  loam.  It  cannot 
be  had  elsewhere  so  cheaply. 

As  the  city  has  no  further  use  for  the  Beacon  Hill 
reservoir  the  Board  recommend  its  removal  and  the 
sale  of  the  land  upon  which  it  stands. 


PARKS. 

The  Mayor  being  required  to  recommend  to  the 
Council  all  measures  which  tend  to  the  improvement 
of  the  health,  comfort,  and  ornament  of  the  city,”  I 
bring  the  subject  of  parks  to  your  attention,  as  they 
eminently  tend  to  the  attainment  of  these  desirable 
ends. 

Modern  23hilanthropy  is  greatly  concerned  for 
whatever  affects  the  sanitary  interests  of  our  largely 
populated  cities.  It  is  active  in  its  efforts  to  create  a 
proper  public  sentiment  in  the  matter.  It  is  con- 
stantly expressing  itself  in  petitions  to  legislatures, 
city  governments,  and  other  bodies,  from  whom 
emanate  reports  and  addresses  setting  forth  the 
causes  of  disease  and  the  duty  of  government  in  the 
way  of  relief.  This  solicitude  has  led  to  the  estal)- 
lishment  of  parks  as  promotive  of  public  health, 
convenience,  and  comfort,  in  most  of  the  large  cities 
in  this  country  and  abroad.  For  a long  time  our 


20 


MAYOR’S  ADDRESS. 


citizens  have  felt  that  the  growth  of  Boston,  its 
wealth  and  its  interests,  jnstified  a reasonable  expen- 
diture for  park  accommodations,  not  merely  for  the 
pleasure  to  he  derived  therefrom,  but  for  their  sani- 
tary benefits. 

This  feeling  found  expression  in  1869,  when  a 
petition,  signed  by  a large  number  of  our  prominent 
and  public-spirited  citizens,  was  presented  to  the  City 
Government,  asking  for  municipal  action  for  the 
estalfiishment  of  one  or  more  parks.  This  was  fol- 
lowed by  other  petitions,  by  the  appointment  of 
committees,  by  hearings,  re])orts,  and  public  meetings, 
by  the  passage  of  resolutions,  newspaper  articles,  and 
all  the  methods  by  which  public  sentiment  shows  it- 
self in  res|3ect  to  matters  of  general  interest.  This 
movement  resulted  in  an  act  of  the  Legislature 
authorizing  the  necessary  expenditure  for  the  pur- 
chase of  park  lands.  The  act  was  duly  accepted  by 
the  citizens,  and  a Board  of  Commissioners  appointed 
to  locate,  with  the  approval  of  the  City  Council,  one 
oi*  more  parks.  This  Board,  in  their  very  able  report 
(City  Doc.  'No.  4),  in  which  the  subject  is  exhaust- 
ively considei*ed,  recommended  a series  of  parks  in 
difiei’ent  sections  of  the  city,  connected  by  park  roads, 
so  as  to  give  park  accommodations  to  all  the  citizens. 
Although  this  plan  was  generally  approved  and  its 
immediate  adoption  urged  by  the  unanimous  vote  of 


MAYOR’S  ADDRESS. 


21 


a large  number  of  public-spirited  and  wealthy  tax- 
payers at  a meeting  held  at  Fanenil  Hall,  in  1875,  it 
was  thought  by  the  City  Council  that  the  time  had 
hot  yet  come  for  action  ; that  a matter  so  important 
should  be  held  under  longer  consideration  before  our 
large  debt  should  be  increased  by  the  large  sums 
required  for  the  park  purchase.  There  was  no  con- 
siderable difference  of  opinion  as  to  the  wisdom  or 
propriety  of  adopting  some  park  scheme  for  onr 
city ; the  chief  objection  related  to  the  time  only 
when  the  work  should  be  commenced.  It  was,  there- 
fore, decided  that  it  would  be  best  to  defer  for  the 
present  all  action  in  the  premises.  This  was  a post- 
ponement, and  not  an  abandonment,  of  the  matter. 

The  great  and  long-continued  depression  in  every 
branch  of  business  which  subsequently  ensued  led  to 
the  suspension,  by  general  consent,  of  any  further 
consideration  of  the  park  question.  In  1877,  how- 
ever, notwithstanding  the  reluctance  of  the  Council 
to  expend  at  the  time  any  moneys  for  park  purposes, 
it  was  deemed  judicious,  for  sanitary  reasons,  to  buy 
and  fill  the  fiats  recommended  by  the  Commissioners 
for  the  Back  Bay  park,  as  they  had  been  for  years 
the  receptacle  of  the  sewage  of  Muddy  river  and 
Stony  brook,  whence  in  the  summer  season,  when  the 
waters  were  shallow,  immense  quantities  of  noxious 
gases  exhaled,  which  greatly  endangered  the  public 


22 


MAYOR’S  ADD  R E S S . 


health.  One  hiiiidred  and  six  acres  were  purchased, 
at  the  avei*age  price  of  ten  cents  per  square  foot  — 
less  than  the  depreciated  tax  valuation  of  1877,  — the 
whole  cost  being  about  $460,000.  $123,681.48 

have  been  expended  from  the  tax  levy  for  till- 
ing. About  eighteen  acres  have  been  filled  to  the 
required  grade.  The  Boylston,  Westland,  Hunting- 
ton,  Parker  Hill,  and  Longwood  entrances  have  been 
filled  to  the  extent  of  about  383,276  square  feet, 
and  also  370,600  square  feet  of  the  marginal- 
park  road,  which  now  extends  almost  around 
the  park  boundary.  There  now  remain  only 
about  4hirty-six  acres  to  be  filled,  as  about  fifty- 
two  acres  will  be  occupied  by  the  lake,  to  be 
formed  from  the  waters  of  Stony  brook,  the  sew- 
age of  which  will  be  carried  into  the  new  sewer  in 
another  year. 

When  the  Back  Bay  purchase  was  under  consid- 
ei*ation,  it  Avas  argued  that  the  appreciation  of  ad- 
jacent lands  would  yield,  through  increased  taxation, 
a considerable  part  of  the  annual  cost  of  main- 
taining the  park,  while  the  betterment  taxes  would 
i*e})ay  a largji^  portion  of  the  amount  paid  for  its 
pnrc'hase.  Experience  has  justified  this  expecta- 
tion. 

In  May,  1878, — less  than  six  months  after  the 
purchase,  — the  valuation  of  the  unfilled  lands  ad- 


MAYOK’S  ADDEESS. 


23 


joining  the  park  territory  Avas  raised  by  the  assessors 
nearly  $900,000;  and  in  May,  1879,  still  further 
increased  to  the  amount  of  $250,000.  Uj^on  this 
argnmented  Aahiation  the  city  has  receiA^ed  the 
taxation  of  those  years.  As  the  park  approaches 
completion,  these  lands  must  appreciate  still  more, 
for  they  are  to  he  immediately  tilled,  and  Avill  then 
he  found  among  the  finest  locations  for  dAYelling- 
honses  in  the  city,  because  of  their  Aucinity  to  the 
park. 

The  Commissioners  are  noAv  engaged  in  assessing 
betterments  on  the  lands  improA^ed  by  the  establish- 
ment of  the  park,  and  it  is  expected  that  they  Avill 
yield  almost  enough  to  pay  the  Avhole  cost  of  the 
purchase.^  A contract  for  tilling  has  been  made  Avith 
the  Boston  & Albany  Bailroad,  and,  if  yon  continue 
the  annual  appropriations  for  the  Avork,  the  ground 
Avill  soon  be  ready  for  the  soil. 

As  Commonwealth  avenue  has  now  been  laid  out 
from  Chester  scpiare,  through  the  park,  to  Brookline 
aA^eniie,  the  OAvners  of  alnitting  lands  have  agreed  to 
till  them  at  once.  This  Avill  increase  their  valnation 


* The  cost  of  tlie  Uaek  Bay  pjurk  land  was  . . . . $4(55, 2-l>  B) 

The  amount  of  l)etternients  assessed  .....  435, 972  00 

If  the  betterments  are  all  recovered  the  net  (“ost  of  the  10(5 


acres  will  be 


$33,254  10 


24 


MAYOR’S  ADDRESS. 


about  $1,000,000.  They  will  soon  be  covered  with 
houses  of  the  same  elegant  and  costly  character  as 
those  on  the  rest  of  the  Back  Bay  territory,  from 
which  the  city  will  derive  a large  annual  tax. 

The  extension  of  Commonwealth  avenue  will 
greatly  relieve  Beacon  street,  which  is  incumbered 
by  the  immense  travel  that  crowds  into  it.  This 
relief  would  alone  justify  all  the  cost  of  the  ex- 
tension. 

In  December  last  the  Commissioners,  believing  that 
the  time  had  now  come  for  action  touching  the  pro- 
posed W est  Boxbury  park,  — if  action  is  ever  to  be 
taken  therein,  — advised,  in  a communication  to  the 
Council,  the  purchase  of  certain  lands  for  this  pur- 
pose. A large  number  of  our  wealthy  tax-payers 
and  business  men  petitioned  for  the  adoption  of  this 
recommendation,  alleging  that  the  required  lands  are 
now  cheap,  but  would  soon  rise  in  value,  as  business 
improves  and  commercial  prosperity  returns,  so 
that  they  could  not  be  had  for  park  objects  ex- 
cept at  greatly  increased  prices.  I may  add  that 
if  the  horse  railroads  are  extended,  as  proposed, 
into  this  territory,  it  will  soon  be  divided  into  lots 
and  built  over,  so  that  their  value  would  be  still 
more  enhanced. 

The  Joint  Committee,  to  whom  the  communication 
of  the  Commissioners  and  the  petition  were  referred. 


MAYOR’S  ADDRESS. 


25 


although  unanimously  in  favor  of  the  project,  thought 
there  was  not  sufficient  time  before  the  year  closed 
to  get  the  action  thereon  of  both  branches  of  the 
Council ; they  therefore  recommend  its  reference 
to  you. 

The  views  of  the  petitioners  seem  to  me  to  have 
much  weight,  and  I deem  it  my  duty  to  request  you  to 
give  them  your  earnest  and  earliest  attention.  They 
ask  for  an  expenditure,  the  greatest  part  of  which,  as 
large  tax-payers,  they  must  pay.  If  you  look  at  the 
names  appended  to  the  petition,  you  will  find  that 
they  represent  large  numbers  of  our  best  and  most 
sagacious  citizens,  — those  who  have  been  long  known 
for  their  attachment  to  Boston  and  their  care  for 
whatever  affects  its  true  interests. 

Permit  me  to  say,  that,  in  considering  this  question 
you  are  to  remember  that  we  have  now  a very  large 
population ; that  the  great  numbers  who  daily  seek,  in 
the  summer  months,  the  fresh  air  of  the  harbor,  the 
coast,  and  the  public  gardens  of  our  suburbs,  attest 
the  popular  demand  for  park  enjoyments,  and  that 
much  of  the  land  of  the  proposed  West  Poxbury 
pai'k  is  in  such  condition  as  to  furnish  park  ac- 
commodations without  the  necessity  of  any  consider- 
able outlay  for  the  present. 

The  Commissioners  recommend  the  acquisition  of 
a strip  of  flats  on  Charles  river  for  the  construction 


2G 


MAYOR’S  ADDRESS. 


of  the  Embaiilvnient  park,  as  set  forth  in  their  report 
for  1876.  This  territory  is  owned  by  the  State,  and 
by  the  Act  of  1878  the  Commissioners  of  Public 
Lands,  with  the  consent  of  the  Governor  and  Conn- 
eil,  were  authorized  to  make  sneh  disposition  of  it  as 
might  he  just  and  proper.  I have  reason  to  believe 
that  it  conld  be  obtained  for  a nominal  price,  and 
while  it  wonld  nltimately  form  a park  for  the  accom- 
modation of  the  northerly  part  of  the  city  proper,  it 
wonld  make  for  the  present  a dumping-ground  for  a 
large  part  of  onr  coal-ashes  and  street-sweepings,  of 
which  we  have  about  150,000  loads  a year.  When 
the  Back  Bay  park  is  filled  we  shall  need  a place 
for  their  deposit.  By  carrying  them  here  we  shall 
gradually  fill  these  flats,  without  expense  to  the  city. 
Fnrtlier  improvement  might  be  postponed  for  some 
years. 

Since  we  have  no  further  use  for  the  Beacon  Hill 
reservoir,  we  might  find  here  tlie  stone  which  wonld 
make  a sea-wall  of  the  best  character. 

It  has  l)een  estimated  that  the  building  of  this  wall 
would  cost  about  $300,000.  The  lands  for  the  pro- 
posed AVest  Roxbnry  park  conld  probably  be  bought 
l*or  .$000,000.  If  tlie  State  will  donate  to  the  city  the 
Cliarles-river  Hats,  the  sea-wall  and  these  park  lands 
could  be  obtained  for  about  $1,200,000. 

As  we  are  so  near  the  limit  of  municipal  indebted- 


MAYOR’S  ADDRESS. 


27 


ness  we  cannot  now  enter  into  this  expense;  but 
since  the  desire  for  some  action  in  the  direction  of 
these  objects  is  now  so  earnest  and  general,  permit 
me  to  suggest  for  your  consideration  a plan  which 
will  give  ns  the  money  without  increasing  our 
debt. 

We  have,  as  I have  before  stated,  lands  not 
wanted  for  municipal  purposes.  They  should  be 
sold.  I append  hereto  a list  of  them,  with  the 
valuation  of  the  Assessors.  By  this  it  appears 
that  there  are  eighty-five  pieces  of  real  estate, 
valued,  with  the  buildings  thereon,  on  the  1st  of 
May  last,  at  $1,626,800.  These  do  not  include 
wharf  property,  nor  islands  in  the  harbor,  nor  the 
Old  State  House,  Faneuil  Hall,  the  market,  nor 
tlie  school-houses  to  be  sold  to  pay  for  the  build- 
ings of  the  new  High  Schools.  They  were  lands 
which  should  have  been  sold  before,  so  that  the 
city  may  tax  them. 

It  is  thought,  by  competent  judges  of  the  value  of 
real  estate,  that  sales  might  be  effected  at  prices 
al)ove  the  Assessors’  estimates.  If,  however,  we 
realized  only  the  appraised  value,  we  should  have 
the  means,  with  such  Ijetterments  as  might  be  ex- 
pected, for  the  purchase  of  the  West  Iloxbury  park 
lands  and  the  Imilding  of  the  embankment  wall.  I 
may  here  add  that  the  reservoir  stone  is  almost 


28 


MAYOR’S  ADDRESS. 


worthless  where  it  is,  as  the  cost  of  removal  would 
nearly  equal  the  cost  of  similar  stone  delivered  from 
the  quarry. 

This  scheme  may  be  regarded  as  the  exchange  of 
lands  not  wanted  for  any  municipal  purpose  for 
those  which  can  in  the  future,  at  trifling  annual 
cost,  be  transferred  into  parks,  which  will  not  only 
adorn  and  embellish  the  city,  hut  afford  attractive 
places,  where  that  large  part  of  our  population 
whose  necessities  compel  them  to  remain  in  our 
hot  streets  during  the  heated  months  can  find 
recreation  and  health. 

The  West  Roxbury  park,  Austin  Farm,  Forest 
Hills  Cemetery,  and  the  Bussey  Estate,  would 
together  make  an  open  and  connected  area  of 
nearly  one  thousand  acres,  — a storehouse  of  fresh 
air,  open  for  all  time  for  the  enjoyment  of  our 
citizens. 

The  scheme  of  selling  these  lands  and  applying 
their  proceeds  to  the  purchase  of  park  lands  might 
perhaps  require  legislative  consent.  If  it  should  not 
appear  to  you  practical  or  expedient,  I would  advise 
the  sale  of  the  property,  and  the  payment  of  the 
money  received  therefrom  into  the  city  treasury.  It 
is  most  impolitic  to  hold  lands  not  wanted  for  public 
use.  Let  the  citizens  buy  and  improve  them,  and  the 
taxes  derived  therefrom  will  help  lighten  the  levy. 


MAYOR’S  ADDRESS. 


29 


The  Commissioners  also  advise  the  purchase  and 
improvement  of  the  lands  and  flats  east  of  Q street, 
City  Point,  as  a pleasure-ground  and  place  of  recre- 
ation for  the  large  population  now  residing  in  this 
section  of  the  city.  For  a long  time  this  has  been 
the  resort  of  those  who  cannot  seek  elsewhere  fresh 
air  in  the  summer  months,  and  it  has  been  computed 
that  sometimes  thirty  thousand  persons  have  assembled 
there.  The  natural  beauties  of  this  locality  have 
always  been  recognized,  and  if  these  flats  were  filled 
by  dredging  those  contiguous,  we  should  not  only 
make  a pleasant  sea-side  promenade,  where  the  sixty 
thousand  inhabitants  of  South  Boston  could  enjoy 
the  refreshing  salt  breezes,  and  a charming  sea  view, 
but  improve  at  the  same  time  the  channel  between 
City  Point  and  Fort  Independence. 

These  flats  could  now  be  purchased  and  filled  for  a 
small  sum,  and  the  opportunity  for  securing  this 
important  sanitary  benefit  should  not  be  neglected. 


DEPARTMENT  OF  PUBLIC  BUILDINGS. 

This  department  has  charge  of  two  hundred  and 
ninety-nine  buildings  owned  by  the  city,  and  nineteen 
leased  for  county,  city,  and  school  purposes,  for  which 
an  annual  rent  is  paid  of  $28,360  : — 


30 


MAYOR’S  ADDRESS. 


County  buildings  . . . . . . $12,500 

City  buildings  . . . . . . . 12,460 

School  buildings  ......  3,400 

$28,360 

The  department  has  spent  during  the  last  year,  in 
repairs  of  public  buildings,  $189,367.97.  It  has 
completed  two  new  school-houses,  — the  Allston 

Grammar  School-house,  in  the  Brighton  District,  and 
the  Polk-street  Grammar  School-house,  in  the 
Charlestown  District.  The  cost  of  the  former  was 
$50,186.37  ; that  of  the  latter,  $27,818.58.  A new 
school-house  will  be  required  by  the  School  Board  at 
Egleston  square,  during  the  year,  and  repairs  will  be 
needed  to  the  South  City  Stables  for  the  Health  De- 
partment. The  estimates  for  the  last  item  are  $7,000. 
The  amount  already  expended  on  the  Latin  and  High 
Schools  is  $273,243.10.  The  appropriation  for  this 
purpose  was  $400,000,  and  it  is  expected  that  it  will 
be  sutticient  for  the  completion  of  the  buildings.  A 
further  sum  will  be  required  to  furnish  them.  There 
will  be  no  other  extraordinary  expenses  in  this 
dej^artment  during  the  year. 

SCHOOLS. 

Althongli  tlie  importance  of  pojmlar  education  is  so 
generally  admitted,  I think  we  cannot  be  too  often 
reminded  ol*  this  solejnn  truth,  that  there  may  be 


MAYOR’S  ADDRESS. 


31 


no  abatement  of  interest  in  onr  schools.  Government 
is  supported  practically  either  by  the  school-master 
or  the  soldier.  Republican  institutions  can  alone  be 
maintained  by  the  former.  When  a commimity  is 
ignorant  its  capacity  to  maintain  itself  against  power 
is  gone,  and  kingcraft,  allied  with  priestcraft,  domi- 
nates. These  are  truths  which  every  page  of  history 
demonstrates.  The  educational  becomes  then  the 
most  important  department  of  onr  government.  Mis- 
takes and  shortcomings  may  occur  in  other  branches ; 
but  these  may  soon  be  corrected,  and  therefore  the 
mischief  is  not  serious.  If  our  public  schools  are 
mismanaged  injury  of  the  gravest  character  may 
follow,  requiring  time  and  labor  to  repair. 

The  Mayor  is  ex-officio  President  of  the  School 
Board,  and  I have  watched  with  great  interest  the 
work  of  the  School  Committee  during  the  past  year. 
It  gives  me  pleasure  to  assure  the  Council  that  they 
have  faithfully  performed  their  arduous  work,  and 
showed  by  their  zeal  and  devotion  a thorough  appre- 
ciation of  its  importance. 

Desirous  of  aiding  the  City  Government  in  their 
efforts  to  reduce  municipal  expenses,  they  appointed, 
in  the  early  part  of  last  year,  a Committee  on  Revi- 
sion, ”with  full  authority  to  examine  every  department 
of  the  school  system  of  this  city,  to  ascertain  what,  if 
any,  change  or  changes  can  be  made  in  the  organiza- 


32 


MAYOR’S  ADDRESS. 


tion  of  the  public  schools,  — the  courses  of  study,  the 
furnishing  of  supplies,  etc., — by  which  the  annual 
expenses  may  be  lessened,  or  the  efficiency  of  the 
schools  increased.” 

This  committee  gave  the  matters  intrusted  to  them 
the  most  careful  consideration,  and  their  report  is 
replete  with  valuable  information  and  suggestions. 
If,  to  quote  the  words  of  the  Superintendent,  ” Revi- 
sion has  failed  or  nearly  failed  to  diminish  expendi- 
ture,” our  citizens  have  this  benefit  from  the  work  of 
the  committee, — they  are  now  assured  that  there  has 
been  no  extravagance ; that  the  costs  of  the  depart- 
ment are  not  more  than  its  needs  require.  They  will 
henceforth  pay  their  school  taxes  without  complaint  ; 
for  they  never  have,  and,  as  I believe,  never  will, 
object  to  any  appropriation  which  the  best  interests 
of  the  schools  shall  demand. 

When  the  requisition  of  last  year  was  cut  down  so 
largely,  the  Council  did  not  have  the  information  con- 
tained in  the  report  of  the  Revision  Committee,  and 
shared  the  belief,  which  has  been  so  general,  that  large 
reductions  in  expenses  might  be  made  without  detri- 
ment to  the  school  system.  I commend  this  paper  to 
your  consideration  when  you  are  called  to  provide  for 
the  School  De]:>artment  for  tlie  next  school  year.  As 
the  appropi'iation  of  last  year  is  inadequate  for  the  de- 
mands of  the  department  for  the  balance  of  1879-80, 


MAYOK’S  ADDRESS. 


83 


it  will  be  neeessarj  to  make  some  pro\bsion  for  the 
defieieney. 

Many  and  important  changes  recommended  by  tlie 
Revision  Committee  have  been  introduced  into  the 
school  system.  The  Kindergarten  school,  established 
as  an  experiment  in  1870,  has  been  abolished,  because 
it  was  not  thought  that  the  demand  for  the  continu- 
ance of  this  system  of  instruction  was  sufficiently  gen- 
eral to  warrant  the  great  expense  of  establishing  the 
nnmber  of  such  schools  which  would  be  required  to 
accommodate  all  the  children  of  the  kindergarten  age. 

The  recent  report  of  the  School  Board  shows  that 
the  High  and  Elementary  Evening  Schools  are  ac- 
complishing important  work.  Their  value  cannot  be 
overestimated.  ” Their  influence  for  good,”  as  the  re- 
port says,  ”is  potent  and  far-reaching,  penetrating 
every  nook  and  corner  of  the  city.”  They  teach 
classes  whose  age,  vocations,  and  necessities  do  not 
permit  them  to  enter  other  schools.  AVe  are  told  that 

r 

The  number  of  pupils  registered  in  the  Evening  High 
Schools  for  1878-9  was  2,326,  and  the  average  number 
receiving  instruction  955  — almost  exactly  two-thirds 
as  many  as  were  in  attendance  at  the  eight  regular 
High  Schools;”  that  at  the  same  time  thei*e  were  over 
1 ,700  attending  the  Elementary  Evening  Schools ; that 
the  attendants  of  the  Evening  High  School  alone  rep- 
resented 283  different  occupations,  and  yet -there  were 


34 


MAYOR’S  ADDRESS. 


/ 


258  iiupils  whose  occupations  were  not  known  or 
given. 

Who  can  fully  estimate  the  benefits  to  society  alone 
fi'om  the  education  of  so  many  thousands  of  our 
poorer  classes,  that,  hut  for  these  Evening  Schools, 
would  have  been  uninstructed,  and,  therefore,  subject 
to  the  many  perils  of  ignorance  ! 

The  School  Board,  at  the  suggestion  of  the  Revision 
Committee,  introduced  an  important  change  in  the 
supervision  of  the  Primary  Schools,  whereby  the  Gram- 
mar school-masters,  relieved  of  this  care,  are  enabled 
to  give  their  whole  attention  to  their  proper  duties. 
Changes  have  been  made  in  the  High  Schools  by  es- 
tablishing High  School  districts,  and  beneficial  results 
are  expected  therefrom. 

The  committee  have  adopted  an  important  plan  for 
the  supply  of  text-books  to  the  puj^ils.  Hitherto 
these  were  furnished  to  those  whose  parents  refused 
or  neglected  to  provide  them,  at  an  annual  expense  of 
about  f5(),()00,  and  it  is  supposed  that  more  than  one- 
hall*  of  those  who  thus  received  free  books  were  able 
to  ])ay  for  them.  By  tlie  plan  now  adopted  it  is  ex- 
pected that  this  amount  will  be  saved  to  the  city. 
d''he  numhei’  of  Su])ervisors  has  been  reduced  from  six 
to  four.  This  saves  .f8,()()0  per  annum. 

dlie  ('ommittee  ex])ress  the  ho])e  that  the  system  of 
training  young  children,  known  as  Frobel’s  system, 


MAYOR’S  ADDRESS. 


35 


will  receive  more  attention,  as  they  believe  it  will  be 
found  to  possess  many  advantages.  The  experiment 
already  made  has,  in  their  opinion,  fully  justified  its 
cost,  and  those  who  have  seen  the  working  of  the 
system  are  equally  delighted  and  surprised.  I believe 
it  will  ultimately  enter  into  all  our  elementary  instruc- 
tion. 


The  total  number  of  children  in  City  of  Boston  between  the 
ages  of  5 and  15,  according  to  the  last  school  census, 

May,  1879,  was  ........  64,766 

Increase  for  year  ........  4,004 

Total  number  of  pupils  enrolled  in  the  public  schools  for 

the  year  .........  56,667 

Total  number  of  teachers  ......  1,260 

Increase  for  year  ........  16 

Number  of  schools  .......  202 


Expenditures  by  School  Board  : 
Salaries  of  teachers  . 

Salaries  of  officers 
Incidental  expenses  . 

Total 

Expenditures  by  Public  Buildin; 
Incidentals 

School-houses  and  lots 
Total  expenditures  for  schools 


. $1,101,251  95 

54,421  44 
251,287  22 

. $1,406,960  61 

Committee  : — 

91,088  82 
296,859  10 

. $1,794,908  5.8 


The  expenditures  for  school-houses  include  the 
payments  on  the  new  Latin  and  High  Schools  in 
1879.  These  will  be  finished  and  prepared  for 
occupation  at  the  commencement  of  the  next  school 


M A Y O U ’ S A D 1)  K E S S . 


year  in  September.  They  have  been  thoroughly 
built  and  will  contain  every  convenience  required 
by  modern  instruction.  We  may  confidently  believe 
that  the  usefulness  of  these  schools  will  be  greatly 
promoted  when  they  are  established  in  their  new 
quarters. 

When  the  Council  made  tlie  loan  for  the  erection 
of  these  school-houses,  in  1877,  they  provided  for  its 
payment  from  the  proceeds  of  the  sale  of  the  Bedford 
street.  South  street,  Harrison  avenue,  and  Washington 
street  (near  Dover  street)  school-houses.  It  is 
probable  that  the  sum  realized  from  this  property 
will  he  nearly  sufficient  to  pay  the  cost  of  these 
magnificent  High  Schools. 


IXDTJSTEIAL  SCHOOLS. 

lmpi*essed  with  the  great  importance  of  the  devel- 
oi)ing  and  industrial  schools,  I directed  the  attention 
of  the  City  Council  of  last  year  to  this  subject,  — in 
my  inaugural  remarks,  — and  the  committee  charged 
with  its  consideration,  after  a long  and  exhaustive 
lieai‘ing,  advised  a reference  of  the  question  to  the 
Scliool  Committee.  That  l)ody  subsequently  adopted 
a resolution  requesting  the  Council  to  ” appropriate 
th(‘,  sum  ot  fifteen  thousand  dollars  — in  addition  to 
the  estimate  f*or  the  year  1880-81 — to  he  spent  in 


M A Y O R ’ S A D D R ESS. 


:^7 

fitting  np  and  maintaining  an  Industrial  Institute  for 
tlie  education  of  young  mechanics.’’  Yon  will  be 
called  to  act  in  the  matter,  and  I trust  it  will  receive 
your  careful  consideration. 

The  Avisdom  of  teaching  the  mechanical  arts  is  not 
impeached  by  those  who  oppose  the  establishment  of 
industrial  schools  as  a part  of  onr  school  system;  but 
they  think  it  Avrong  in  principle  to  tax  the  citizens  for 
•such  instruction,  however  desirable  it  may  be.  I fail 
to  appreciate  the  force  of  the  objection.  What 
justifies  taxation  for  the  support  of  Primary,  Grammar 
and  High  Schools?  The  safety.  It  can  be 

vindicated  on  no  other  ground.  Whatever  the 
public  safety  demands  should  be  conceded.  Igno- 
rance endangers  society.  It  is  the  enemy  of  onr  free 
institutions.  We  tax  to  hire  school-masters  to  light 
this  enemy  — as  we  tax  to  hire  soldiers  to  fight  other 
enemies.  If  ignorance  of  the  handcrafts  multiplies 
idlers  and  tramps,  Avhy  should  we  not  tax  for  the  in- 
struction Avhich  Avill  get  ns  rid  of  them? 

Assume  that  the  training  of  these  industrial  schools 
will  accomplish  what  their  advocates  claim,  and  give 
ns  good  and  skilful  mechanics,  then  such  institutions 
are  to  be  defended  on  economical  grounds  alone,  and 
Avill  repay  their  entire  cost.  If  the  sole  objection  to 
their  establishment  is  the  legal  right  to  tax  for  it,  I 
think  such  objection,  Avhen  examined  in  a proper 


38 


MAYOR’S  ADDRESS. 


spirit,  will  be  found  of  no  more  weight  than  that  to 
taxation  for  other  educational  purposes. 

PUBLIC  LIBRARY. 

Oin*  citizens  are  justly  proud  of  the  Public  Library. 
They  know  its  valne.  It  was  established  to  make  it 
as  far  as  possible  the  crowning  glory  of  onr  system 
of  city  schools,  to  make  it  an  institution  fitted  to  con- 
tinue and  increase  the  best  efforts  of  that  system  by 
, opening  all  the  means  of  self-cnltnre  throngh  hooks 
for  which  these  schools  have  been  specially  qualifying 
them.’’  These  objects  have  been  well  and  snccess- 
fnlly  attained. 

This  Library  is  the  largest,  and  I ventnre  to  say  in 
every  respect  the  best  on  this  continent.  There  are 
few  in  the  world  superior  to  it.  It  now  contains 
370,641  volumes.  Its  remarkable  growth  from  its 
organization,  in  1833,  to  the  present  time  calls  forth 
onr  gratitude  to  those  who  have  managed  its  affairs, 
to  the  City  for  its  liberal  appropriations  in  its  behalf, 
and  to  its  many  friends  for  their  generous  donations* 

I cannot  repress  the  desire  to  refer  to  some  of  the 
hitter,  for  they  should  he  kept  in  perpetual  remem- 
brance. In  1830,  tliat  excellent  man,  patriotic  citizen, 
and  upright  magistrate,  John  P.  Bigelow,  gave  the 
first  moneys  donatc‘d  to  tlie  Boston  Public  Library. 
Tlie  sum  of  $1,000  had  been  subscribed  by  his 


MAYOR’S  ADDRESS. 


39 


friends  as  a testimonial  of  his  personal  worth, 
hilt  he  directed  its  application  to  the  Libraiyd  This 
generous  act  and  his  ''  earnest  and  efficient  labors 
during  the  early  part  of  his  mayoralty,  in  establishing 
this  institution  and  obtaining  the  aid  of  two  of  its 


^ A large  sum  of  money  had  been  subscribed  and  collected  by  Mr. 
Bigelow’s  friends  in  the  city,  for  the  purchase  of  a silver  vase,  as  a testimo- 
nial of  their  appreciation  of  his  character  and  public  services ; but,  on  being 
notified  of  their  intentions,  be  declined  to  accept  so  large  a vase,  and  asked 
as  a favor  that  a portion  of  the  funds  he  appropriated  to  the  foundation  of  a 
Free  Public  Library.  This  request  met  with  some  objection  from  the  sub- 
scribers to  the  vase ; but  it  was  finally  decided  that  he  should  receive  a silver 
salver,  suitably  inscribed,  and  the  balance  of  the  money  be  appropriated 
agreeably  to  Mr.  Bigelow’s  request.  One  thousand  dollars  were  thus  paid  to 
th  e City  of  Boston  to  found  the  Boston  Public  Library. 

The  inscription  upon  the  salver  presented  to  Mr.  Bigelow  was  as  follows  : — • 
The  Honorable  John  Prescott  Bigelow,  declining  to  receive  a costly  vase 
as  a tribute  to  the  faithful  discharge  of  official  duty,  and  suggesting  that  the 
fund  obtained  for  that  purpose  be  devoted  to  the  founding  of  a Free  Public 
Library,  the  subscribers  to  that  fund,  having  acceded  to  that  suggestion,  do 
now  present  this  salver  to  the  Hon.  Mr.  Bigelow,  in  token  of  their  high  appre- 
ciation of  that  act  of  enlightened  regard  for  popular  learning,  and  of  tlieir 
respect  for  him  as  a man  and  magistrate. 

ROBT.  G.  SPIAW, 

FRANCIS  BRINLEY, 

DANIEL  SHARP,  Jr., 

DAVID  K.  HITCHCOCK, 
JAMES  WHITING, 

D.  E.  JEWETT, 

J.  P.  ROBINSON, 

WILLARD  HARRINGTON, 

Committee. 


Boston,  May  20,  1850. 


40 


MAYOR’S  ADDRESS. 


earliest  and  most  munificent  patrons,  entitle  him,” 
as  the  resolutions  passed  on  29th  J annaiy,  1869,  on  his 
resignation  as  Trustee  of  the  institution,  and  at  his 
decease  by  the  City  Council,  declare  ”to  he  re- 
garded as  the  founder  of  the  Public  Library  of  the 
City  of  Boston,  and  as  such  to  he  always  recognized, 
respected,  and  remembered.” 

The  example  of  Mr.  Bigelow  without  doubt  greatly 
infinenced  others.  In  1852  Joshua  Bates  gave 
$50,000;  in  1853  Jonathan  Phillips,  $10,000,  and 
afterward  $20,000  more;  in  1859  Abbott  Lawrence, 
$10,000,  and  Mary  P.  Townsend,  $4,000;  in  1863 
the  Franklin  Club,  $1,000;  in  1871  George  Ticknor, 
$4,000;  in  1874  Henry  L.  Pierce,  $5,000,  to  the  Li- 
brary. Gifts  of  books,  pictures,  paintings,  engravings, 
and  works  of  art  were  made  from  time  to  time  by  the 
lion.  Robert  C.  Winthrop,  a constant  friend  of  the 
institution;  Edward  Everett,  Josiah  Quincy,  George 
Ticknoi*,  Thomas  G.  Appleton,  George  S.  Hilliard, 
"William  Gray,  W^illiam  Everett,  Lemuel  Shattnck,  J. 
D.AY.Williams,  Cliarles  G.  Putnam,  Jonathan  French, 
James  AV.  Paige,  John  C.  Ropes,  AV.  C.  Gannett, 
Henry  R.  Dalton,  John  J.  Dixwell,  and  many  others. 

A^on  will  thus  perceive  tliat  the  great  success  of  the 
Public  Lil)rary,  and  its  present  prosperity,  have  re- 
sulted from  the  ” comhiuation  of  municipal  support 
and  of  private  generosity.” 


MAYOR’S  ADDRESS. 


41 


The  administration  of  the  Libi’ary  has  been  made 
more  effective  by  its  incorporation.  It  is  gratifying 
to  know  that  the  circulation  of  instructive  as  well  as 
pleasing  books  has  been  largely  increased.  The  Trus- 
tees report  ” that  the  causes  which  have  diminished 
for  the  last  two  or  three  years  the  use  of  the  popular 
branch  of  the  great  Library  still  exist,  and  will  con- 
tinue to  exist  until  larger  and  more  suitable  accom- 
modations for  the  public  are  provided.” 

The  necessities  of  the  Library  — its  safety,  con- 
venience, and  usefulness  — all  imperatively  demand 
increased  accommodations.  This  want  has  been 
recognized,  not  only  by  the  Trustees,  by  the  Citizens’ 
Committee  of  Library  Examination,  but  by  the  Joint 
Committee  of  the  City  Council  of  last  year  on  this 
institution.  It  cannot  be  supplied  by  an  addition  to 
the  present  building.  We  should  have  a new  build- 
ing on  some  of  the  Back  Bay  lands,  where  we  can 
have  sufficient  space  for  the  present  and  future  wants 
of  the  Library,  and  so  isolated  as  to  insure  certain 
protection  against  fire. 

I have  reason  to  believe  from  conferences  with  His 
Excellency  the  Governor  of  the  Commonwealth  and 
others  during  the  last  year,  that  in  view  of  the  bene- 
fits denved  from  this  Library  by  the  people  of  the 
State  generally,  as  well  as  the  citizens  of  Boston,  and 
for  other  meritorious  considerations,  the  Legislature 


42 


MAYOR’S  A T>  I)  R E S S . 


would  recognize  the  propriety  of  giving  to  the  city  a 
lot  of  ground  on  Boylston  street  for  its  location.  I 
would  suggest  an  application  to  the  present  Legisla- 
ture for  a grant  of  this  land  before  it  is  divided  into 
lots  and  sold. 

Unless  greatly  assisted  hy  private  contributions  we 
could  not  at  present  undertake  the  erection  of  a new 
building  if  the  desired  site  were  obtained. 

The  present  location  on  Boylston  street  is  central 
and  accessible,  and  would  sufficiently  accommodate 
the  popular  Library  and  Reading-room,  but  the  great 
consulting  Library,  which  would  he  followed  wherever 
within  reasonable  limits  it  should  go,  could  be  well 
located  on  any  part  of  the  Back  Bay  between  Charles 
street  and  the  Back  Bay  park. 

I commend  this  matter  to  your  earnest  attention 
and  care,  believing  that  if  the  Library  is  accomplish- 
ing the  objects  of  its  erection,  and,  to  use  the  words 
^ of  Mr.  George  Ticknor,  its  early  and  steadfast  friend, 
” it  is  found  to  supply  an  existing  defect  in  our  other- 
wise admirable  system  of  public  education,  its  future 
condition  may  well  he  left  to  the  judicious  liberality 
of  the  City  Government  and  the  public  spirit  of  the 
community.'’ 

PUBLIC  INSTITUTIONS. 

The  Board  of  Directors  of  Public  Institutions  has 
the  charge  of  the  Houses  of  Correction,  Industry,  and 


M A Y 0 R ’ S A I)  D R E S S . 


43 


Reformation,  the  Lunatic  Hospital  and  the  Alms- 
houses. These  institutions,  particularly  that  portion 
of  them  which  is  located  at  Deer  Island,  have  long 
attracted  the  attention  of  those  interested  in  penal 
and  reformatory  questions.  Strangers  visiting 'Boston 
to  study  the  management  of  our  municipal  service, 
always  express  admiration  for  the  system  under  which 
they  are  organized,  and  for  the  good  order  and  disci- 
pline which  are  everywhere  maintained. 

W e may  be  assured  that  there  will  be  no  abatement 
of  excellence  in  the  management  of  these  institutions 
while  the  present  Board  of  Directors,  guided  by  its 
able  president,  Mr.  Samuel  Little,  supervises  the  de- 
partment. 

You  and  the  citizens  may  desire  to  know  that  the 
general  health  of  the  inmates  of  these  institutions 
during  the  past  year  has  been  good ; that  the  number 
of  patients  in  the  Lunatic  Hospital  has  been  somewhat 
reduced;  that  in  compliance  with  the  order  of  the  City 
Council  fifty  patients  were  transferred  to  the  hospital 
at  Danvers;  that  all  the  prisoners  in  the  House  of 
Correction  are  now  fully  employed,  and  that  their 
work  has  been  more  remunerative  for  the  last  than 
for  several  previous  years;  that  the  brick  extension 
of  the  main  building  of  the  House  of  Industry  at 
Deer  Island  is  nearly  completed;  that  the  home  for 
adult  female  poor  at  Austin  Farm  has  been  increased. 


44 


M A Y O K ’ S AD  D R ESS. 


SO  as  to  accommodate  about  one  hundred  more  inmates ; 
and  that  the  new  building  for  pauper  and  neglected 
children  at  Marcella-street  Home,  to  which  the  pauper 
girls  now  at  Deer  Island  are  to  be  removed,  will  be 
soon  ready  for  occupation. 

It  is  not  probable  that  any  appropriation  will  be 
required  for  this  department  at  this  time  for  any 
extra  or  din  ary  expenditure . 

In  my  last  inaugural  address  I advised  the  instruc- 
tion of  the  children  of  the  Reform  School  in  mechan- 
ical trades,  so  that  they  could  earn  their  living  when 
they  left  it.  ~No  action  in  this  direction  was  taken  by 
the  last  City  Council.  I now  renew  the  recommend- 
ation, and  solicit  your  serious  consideration  of  the 
matter,  believing  tliat  the  interests  of  the  community, 
as  well  as  those  of  the  children,  would  be  greatly 
promoted  by  the  measure. 

OVERSEERS  OF  THE  POOR. 

The  Overseers  of  the  Poor  were  incorporated  in 
1772.  Although  a considerable  part  of  their  duties 
lias  lieeu  transfeiTed  to  the  Board  of  Directors  of 
Public  Institutions,  their  functions  are  most  important 
and  their  labors  arduous. 

They  are  dh*ustees  of  the  Pemberton,  Boylston, 
Mason,  Dexter,  Jelfries,  Bulhnan,  Sears,  Pierce,  Hol- 
ton, and  Stoughton  Funds,  established  by  these  phi- 


MAYOR’S  ADDRESS. 


45 


lanthropists  for  the  benefit  of  that  poor  ” which  we 
have  Avith  us  always.”  The  principal  of  these  funds 
amounts  to  about  $510,000,  and  the  income,  to- 
gether Avith  the  annual  appropriation  of  the  City 
GoA^ernment,  — now  about  $125,000,  — are  ex- 
pended in  the  relief  of  such  of  the  poor  as  are  not 
inmates  of  the  Poor-house,  and  require  temporary  aid 
only.  The  income  of  some  of  these  funds  is  specially 
ajDprojDriated  by  the  devises,  under  Avhich  they  are 
created,  to  certain  classes  of  beneficiaries;  but  the 
duties  of  the  Overseers  require  domiciliary  visits  to 
be  made  to  those  who  solicit  assistance ; and  Ave  may 
form  some  opinion  of  the  magnitude  of  their  labors 
from  the  number  of  such  visits  during  the  year. 

The  last  annual  report  shows  that  14,011  visits  were 
made  by  the  officers  of  the  Board,  and  5,627  families 
(264  less  than  in  1877-78,  and  1,286  less  than  in 
1876-77)  assisted. 

The  Avork  of  this  department  requires  all  applica- 
tions for  aid  to  be  filed  and  recorded;  and  the  books 
shoAV  about  20,000  of  such  papers.  These  files  are 
indexed,  so  that  the  record  of  CA^ery  applicant  for 
municipal  aid  for  the  last  fifteen  years  can  be  easily 
found. 

The  system  and  method  exhibited  in  the  business 
of  this  department  are  most  commendable,  and  reflect 
great  credit  upon  the  Board. 


46 


M A Y 0 R ’ S A D D R E S S . 


The  Overseers  represent  that,  notwithstanding  the 
extension  of  relief  by  recent  legislation  to  larger 
classes  of  the  pooi*  not  previously  entitled  thereto, 
neither  the  numbers  relieved,  nor  the  amounts  dis- 
tributed, exceed  those  of  last  year.  They  think  there 
is  reason  to  believe  that  there  will  be  less  suffering 
from  poverty  this  winter  than  during  those  of  many 
previous  years.  They  represent  that  the  ” intimate 
relations,  now  happily  inaugurated  between  benevolent 
individuals  and  the  organized  public  charities,  will 
tend  to  diminish  still  more  the  charge  on  the  treasury 
for  the  relief  of  the  poor;  ” and  they  assert  that  this 
charge  would  be  still  more  diminished  if  instruction 
in  those  pursuits  which  enable  the  citizen  to  earn  his 
living  were  given  to  the  young,  and  to  those  also 
Avho  have  reached  later  periods  of  life. 

Tlie  Lodge  for  Wayfarers,  established  in  Hawkins 
street  in  the  latter  part  of  Jannary,  1879,  as  an  exper- 
iment, lias  proved  a success.  For  many  years  the 
annual  number  of  ])ersons  who  sought  lodging  at  the 
police  station-houses  averaged  sixty  thonsand,  nearly 
two  hundred  a night.  On  one  occasion,  the  number 
exceeded  six  hundred.  This  crowd  of  ” untidy  and 
ol‘tc‘11  disorderly  persons  interfered  with  the  discipline 
of  the  stations  and  the  more  legitimate  duties  of  the 
ollicei-s,’’  and  became  an  intolerable  nuisance. 

Most  of  these  now  come  to  the  Lodge,  where  each 


M A Y O II  ’ S A D D K P]  S S . 


47 


one  has  his  clothes  thoroughly  cleaned,  is  well  fed,  and 
gets  a good  bed  in  a thoroughly  yentilated  room,  for  the 
slight  equivalent  of  sawing  and  splitting  in  the  morning 
a foot  of  wood.  While  the  more  deserving  of  these 
homeless  and  friendless  beings  are  thus  relieved  for 
the  time,  the  work  required  for  the  food  and  lodging 
furnished  has  driven  from  the  city  the  incorrigibly  idle. 

The  whole  number  of  admissions  to  the  Lodge  for 
the  ten  or  eleven  months  since  it  was  opened  is  four- 
teen thousand,  about  six  thousand  ditferent  individ- 
uals. It  is  gratifying  to  know  that  they  have  been 
well  l)eliaved,  and  glad  to  perform  the  work  due  from 
them.  They  were  for  the  most  part  in  pursuit  of 
employment,  which  in  many  instances  was  found  for 
them  by  the  Industrial  Aid  Society  in  the  Chardon- 
street  Building. 

As  our  citizens  will  be  interested  to  know  the  ex- 
penses of  this  institution,  I would  state  that  there 


was  paid  for  — 

Food,  costing  5 cents  per  meal  ....  $1  ,G00  00 

Wages  and  salaries  .......  8,000  00 

Gas 40o  00 

Cleaning  . . . . . . . . 171  00 

Fuel  . . . . . . . . . 227  40 

AYater  .........  oO  00 

Printing  and  garments  ......  220  00 


|5,G78  40 

Alterations  and  repairs  to  furniture  about  . . 8,500  00 


$14,178  76 


48 


M A Y ()  E ’ S A D 13  K ESS. 


About  five  hundred  cords  of  wood  have  been  cut 
by  the  wayfarers.  This  was  purchased  at  six  dollars, 
and  sold  at  ten  dollars  per  cord.  Some  of  this  was 
purchased  by  our  citizens,  but  most  of  it  was  furnished 
to  our  school-houses  and  public  buildings. 

The  beneficial  work  of  the  Wayfarers’  Home  has 
fully  vindicated  the  wisdom  of  its  organization,  and  I 
trust  the  Council  will  appreciate  the  policy  of  continu- 
ing the  appropriations  necessary  for  its  support. 

The  last  annual  report  of  the  Overseers  of  the  Poor 
is  full  of  valuable  information  and  suggestions  touch- 
ing this  and  other  matters  under  their  direction,  and 
I commend  it  to  your  careful  consideration. 

CITY  HOSPITAL. 

The  City  Hospital  is  placed  under  the  direction  of 
a Board  of  nine  Trustees  appointed  by  the  Council, 
tliree  from  that  l)ody  to  sei’ve  one  year,  and  six  from 
the  citizens  at  large  to  serve  three  years,  who  annu- 
ally elect  a Su])erintendenf,  who  controls,  under  their 
supervision,-  all  tlie  afiairs  of  the  hospital.  The  re- 
])orts  of  these  oliicers  show  that  their  trusts  have 
been  well  and  faithfully  administered  during  the  year. 
Bost()]i  maybe  ])roud  otthis  charity.  Aone  but  those 
who  have  examined  its  recoi*d  can  properly  appreciate 
the  beiielits  it  has  conlei*i*ed  u])on  the  thousands  who 
sutler  from  disease*.  We*  have  had  full  value  receiveel 


M A Y 0 R ’ S ADDRESS. 


49 


for  every  dollar  spent  on  this  noble  institution.  It  is 
well  and  economically  managed,  and  reflects  honor 
and  credit  upon  the  Superintendent,  the  medical  and 
surgical  staff,  and  all  the  officers  connected  wdth  it. 

AYe  can  form  some  opinion  of  its  work  from  the 
following  statistics  : — 


Number  of  patients  in  the  hospital  on  the 

30th  of 

April,  1878  ..... 

308 

MKlical  ...... 

2,686 

Surgical  ...... 

1,543 

Opthalmic  ...... 

94 

— 

4,323 

Total  treated  during  the  year  . 

. 

4,631 

Discharged  ...... 

3,981 

Died 

347 

4,328 

Remaining  in  hospital,  April  30,  1879 

303 

Numl)er  of  patients  treated  in  the  out-door  depart- 

ment  ...... 

. 

10,419 

Number  of  visits  to  hospital  . 

. 

31,822 

The  cost  of  maintaining  the  liospital  during  the  year 

was  ........ 

Paid  l)v  patients  . ^.  . . . . . 


$117,856  45 


Cost  for  treating  4,543  non-paying  patients 


$110,036  03 


The  report  of  the  Superintendent  shows  that  the 
hospital  has,  during  the  past  year,  ministered  to  the 
wants  of  an  increased  number  of  persons,  who  have 
been  treated  at  a decreased  cost  per  capita.  This  re- 
sult indicates  greater  economy  and  efficiency  in  the 


50 


MAYOR’S  ADDRESS. 


management  of  the  hospital,  gratifying  to  the  Trus- 
tees and  creditable  to  its  officers. 

This  institution  has  lost  the  services  of  Dr.  Ed- 
ward Cowles,  who  for  seven  years  has  managed 
its  affairs  as  Hesident  Physician  and  Superintendent. 
Much  of  its  success  must  he  attributed  to  the 
fidelity  with  which  he  has  performed  his  arduous 
duties.  We  are  fortunate  in  having  for  his  suc- 
cessor Dr.  Cf.  M.  H.  Pow^e,  whose  ability  and  skill 
are  assurance  that  the  reputation  and  usefulness 
of  the  hospital  Avill  be  well  maintained  in  the 
future. 

A Training  School  for  nurses  has  been  recently 
established  at  the  hospital,  and  beneficial  results  have 
already  ensued.  When  it  is  remembered  that  care- 
ful nursing  is  regarded  as  an  important  factor  in  the 
cure  of  disease,  we  can  appreciate  the  necessity  of 
educating  those  who  are  to  follow  this  calling  to  a 
correct  knowledge  of  its  duties.  The  community 
as  well  as  the  patients  of  the  hospital  are  alike 
thus  benefited.  As  the  school  is  now  organized 
instruction  is  daily  given  by  the  Superintendent,  and 
lectures  on  the  various  duties  of  the  nurse  are 
weekly  delivered  l)y  the  medical  staff.  These  are 
I'ollowed  l)y  examinations,  that  there  may  be  as- 
surance tliat  the  pupils  thorougldy  understand  what 
tliey  are  taught,  l^'liis  sc'hool  of  instruction  has  not 


MAYOR’S  ADDRESS. 


51 


increased  the  expenses  of  the  hospital,  and  all  the 
nursing  there  is  now  under  the  charge  of  the  Train- 
ing School. 

In  my  inangnral  remarks  last  year  I suggested  the 
wisdom  of  applying  to  the  Legislature  for  an  act 
incorporating  the  City  Hospital,  so  that  it  might  pos- 
sess the  same  powers  which  are  enjoyed  by  the 
Overseers  of  the  Poor  and  the  Public  Library.  I 
was  satisfied  by  information  derived  from  those  who 
best  understood  the  wants  and  interests  of  this 
important  charity,  that  its  capacity  for  usefulness 
would  thereby  be  greatly  promoted.  Without  un- 
dertaking to  specify  all  the  advantages  which  a 
corporate  organization  would  give  the  institution,  I 
referred  to  the  power  of  holding  real  and  personal 
estate  given  or  devised  to  it,  and  the  greater  likelihood 
of  getting  trustees  who  could  give  more  time  to  their 
duties  than  those  annually  selected  from  the  Council 
to  serve  for  a single  year.  The  subject  was  con- 
sidered by  the  Council,  but  failed  by  a few  votes  to 
receive  its  approval.  It  was  mistakenly  supposed 
that  the  possession  of  the  proposed  corporate  powers 
would  place  the  hospital  beyond  the  control  of  the 
City  Council.  Such  would  not  be  the  fact.  The 
trustees  would  be  elected  as  now  by  that  body; 
they  would  be  removable  at  its  pleasure  as  now; 
they  would  have  no  more  control  over  the  affairs 


52 


MAYOR’S  ADDRESS. 


of  the  institution  than  they  now  have,  and  the 
Council  would  retain  all  its  power  to  give  or  with- 
hold the  annual  appropriations  required  for  its 
support. 

Believing,  as  I still  do,  that  the  best  interests  of 
the  hospital  demand  its  incorporation,  and  that  this 
belief  will  be  shared  by  you  upon  a full  consideration 
of  the  subject,  I again  advise  a petition  to  the  Legis- 
lature for  the  required  act. 

BOARD  OF  HEALTH. 

The  record  of  this  department  shows  a great 
amount  of  faithful  work  during  the  past  year;  that 
twenty-five  thousand  nuisances,  including  those  of 
the  Back  Bay  and  South  Boston,  were  abated. 
The  former,  most  ofiensive  in  the  summer  months, 
has  been  relieved  by  extending  the  Stony  brook 
sewer,  covering  the  ash  banks,  and  building  sluices ; 
the  latter,  which  was  fast  depopulating  a portion  of 
Washington  Village,  l:>y  covering  with  clean  gravel 
a large  area  of  mud  and  sewage  flats.  It  also  shows 
a large  munber  of  vacant  lots  filled  with  stagnant 
water  and  other  filth  have  been  covered  and  im- 
proved; that  ten  additional  public  urinals  were 
erected;  that  the  Morgue  on  Vorth  Grove  street 
has  l)eeii  repaired,  enlarged,  and  fitted  up  for  the 
acconnnodalion  of  the  work  of  the  Medical  Exam- 


MAYOR’S  ADDRESS. 


53 


iners,  and  that  proper  attention  has  been  given  to 
quarantine,  the  Abbatoir,  Lying-in  Hospital,  baby 
farms,  cemeteries,  and  contagions  diseases. 

The  report  of  the  Board  informs  us  that  the  City 
has  been  for  some  years  hapj)ily  ''  quite  free  from 
epidemic  and  contagions  diseases;  that  the  last  case 
of  small-pox  occnrred  seventeen  months  ago;  that 
no  ease  of  cholera  or  yellow-fever  has  been  found  in 
the  city  for  many  years ; that  scarlet-fever  has  been 
less  prevalent  during  the  last  three  years  and 
that  the  mortality  from  it  during  this  period  has 
averaged  less  than  during  the  preceding  ten  years; 
that  the  number  of  deaths  in  1878  were  7,636,  and 
in  1879,  7,393;  that  the  deaths  from  preventable 
diseases,  in  1878,  were  1,980,  and  those  of  1879, 
1,907.’’ 

If  the  population  be  estimated  at  375,000  the  death 
rate  for  1879  was  19.71  per  thousand. 

The  Board  suggests  a change  in  the  law  so  that  no 
bodies  can  be  buried  or  removed  from  the  city  without 
its  consent.  As  the  law  now  stands  any  one  dying  of 
contagious,  malignant,  or  other  disease,  or  by  the  foul 
practices  of  the  abortionists  or  otherwise  murdered, 
can  be  buried  or  carried  away  without  even  the  knowl- 
edge of  the  Health  Commissioners. 

As  the  duties  of  the  City  Registrar  pi*operly  belong 
to  the  Board  of  Health,  I advise  their  transfer  to  that 


54 


MAYOR’S  ADDRESS. 


department  and  the  abolition  of  his  office.  By  so 
doing  we  should  save  the  treasury  several  thousand 
dollars  annually,  and  give  greater  unity  and  efficiency 
to  this  branch  of  our  municipal  service. 

The  Board  also  points  out  the  necessity  of  early  and 
accurate  information  concerning  disease  and  death,  to 
enable  it  to  adopt  the  means  for  the  protection  of  the 
public  health.  To  this  end  it  advises  an  amendment 
of  the  law  touching  the  registration  of  vital  statistics. 
It  also  recommends  some  legislation  by  which  there 
should  he  a lien  for  the  reimbursement  of  expenses 
incurred  by  it  in  building  drains,  etc. ; and  suggests 
the  vigorous  j>rosecution  of  the  work  of  filling  the 
flats  where  the  sewage  of  Stony  brook  is  deposited 
before  the  approach  of  the  warm  season;  but  it  does 
not  expect  complete  immunity  from  nuisance  in  this 
territory  until  the  completion  of  the  sewer  which  is  to 
carry  off  the  foul  matter  and  the  filling  of  the  offen- 
sive flats  with  clean  earth. 


IMPROVED  SEWERAGE. 

Tills  important  work  has  progressed  steadily  during 
the  past  year.  The  City  Engineer  reports  that  ''of 
the  main  sewer,  which  crosses  the  city  from  Hunting- 
ton  avenue  to  the  sea-coast  at  Dorchester,  3.22  miles 
in  length,  2.54  miles  are  now  completed,  and  the  re- 
maining .68  mile  either  under  contract  or  being  built 


]vr  A Y O E ’ S A D D E E S S . 


55 


])y  the  city,  so  that  the  whole  will  he  completed  dur- 
ing next  Slimmer.  On  the  west  side  of  the  city  a 
branch  sewer  is  completed  from  Huntington  avenue 
to  Cambridge  street,  and  on  the  east  side  from  the 
main  sewer . to  Dover  street;  1.31  miles  of  other 
branch  sewers  are  completed.” 

At  the  site  of  the  jaumping-station  at  Dorchester 
the  Engineer  is  now  building  the  foundations  for  the 
pumps  and  other  structures.  The  necessary  wharves 
and  sea-walls  have  been  constructed.  The  pumping- 
engines  will  be  .ready  for  use  early  next  year,  when 
we  may  be  able  to  pump  temporarily  into  Dorchester 
bay  the  sewerage  now  entering  Stony  brook,  Charles 
river  and  South  bay,  which  makes  most  of  the  sew- 
age nuisance,  and  consequently  causes  most  of  the 
danger  which  threatens  the  health  of  the  city.  The 
Engineer  reports  that  the  ” tunnel  under  Dorchester 
bay,  which  will  conduct  the  sewage  toward  Moon 
Island,  is  under  way  and  will  be  completed  on  1st 
January,  1882.  The  reservoir  and  outlets  will  be 
finished  at  the  same  time,  and  the  sewage  niay  then 
be  delivered  into  the  outer  harbor  at  Moon  island.” 

The  work  has  been  well  and  economically  con- 
structed. 

In  view  of  the  apprehensions  which  have  been  from 
time  to  time  expressed  touching  the  efficiency  of  this 
sewer  in  accomplishing  its  objects,  it  must  be  gratify- 


56 


MAYOR’S  ADDRESS. 


ing  for  you  and  your  constituents  to  know  that  the 
able  and  experienced  Civil  Engineer  who  is  charged 
with  this  important  work  reports  that  after  due  con- 
sideration of  the  objections  occasionally  urged  against 
the  system,  ^N^othing  has  yet  arisen  to  cause  a doubt 
that  the  plan  proposed  is  the  proper  solution  of  the 
sewerage  problem  at  Boston  and  will  afford  the  re- 
quired relief.” 

The  work  of  filling  the  Boxbury  canal  is  nearly 
completed. 


IXSPECTIOX  OF  BUILDINGS. 

The  work  of  this  department  affects  the  safety  of 
the  city,  and  is  therefore  most  important.  The  act 
providing  for  the  regulation  and  inspection  of  build- 
ings was  passed  in  1871,  because  so  many  fires  were 
caused  by  defective  construction.  It  is  to  be  regret- 
ted that  this  bureau  had  not  been  created  before,  in 
compliance  with  the  frequent  recommendations  of 
the  Fire  Department,  as  many  buildings  erected 
previous  to  the  passage  of  the  act  would  have 
been  more  safely  l)uilt.  The  business  of  this  de- 
partment lias  been  recently  reorganized  by  the  able 
Chief  Inspector  and  his  staff*  of  assistants,  so  that 
the  objects  of  its  creation  can  be  more  effectively 
accomplished.  By  the  sj^steni  now  adopted,  de- 
tailed plans  of  all  the  important  structures  are 


MAYOR’S  ADDRESS. 


57 


made  and  placed  on  file,  and  memoranda  of  the 
height,  thickness  of  walls  and  floors,  character  of 
materials,  and  like  architectural  details,  giving  com- 
plete information  of  the  construction,  made  and 
recorded.  This  work  has  been  thoroughly  done, 
and  has  consumed  a great  amount  of  time  and 
labor.  It  reflects  much  credit  on  the  Inspec- 
tors. 

The  report  of  this  department  shows,  as  evidence 
of  its  work  last  year,  that 


There  were  unsafe-buildings  . . . . . . 240 

Unsafe  heating- apparatus  . . . . . ' . . 32 

Dangerous  chimneys  . . . . . . .976 

Violations  of  the  building  laws  ......  1,650 

Requisitions  for  fire-escapes  . . . . . .122 

Defective  fines  .........  28 

Examinations  of  engines,  boilers,  ovens,  and  furnaces  . 241 


Some  of  tile  statutes  of  the  Commonwealth  touch- 
ing the  construction  of  buildings  contain  provisions 
which,  although  generally  beneficial,  are  unreasonable 
and  onerous  in  exceptional  cases.  Many  applica- 
tions were  made  during  the  year  for  relief  from 
these  stringent  provisions;  but  the  department  had 
no  power  to  modify  them.  I would  suggest  a 
change  of  the  law  so  that  more  discretion  be 
given  to  the  Inspectors,  in  certain  cases.  Legis- 
lative action  would  be  necessary  for  the  purpose. 


58 


MAYOR’S  ADDRESS. 


FIEE  DEPARTMENT. 

The  losses  by  lire  in  1879  to  the  recent  lire  in 
Deyonshire  street,  in  the  latter  of  December, 

were  less  than  those  of  any  other  year  for  the 
last  quarter  of  a century.  This  gratifying  fact,  is, 
without  clonbt,  partly  due  to  the  improved  method 
of  building,  hnt  mainly  to  the  efficiency  of  the  Fire 
Department,  its  system  of  patrol,  and  its  excellent 
discq)line. 

The  department  has  261  permanent  members,  and 
342  call  men.  It  has  29  lire-engine  companies,  12  hose 
companies,  11  hook  and  ladder  companies,  7 chemical 
engine  companies,  and  a lire-hoat,  whose  utility  in 
saying  shipping  and  wharf  property  is  well  appre- 
ciated by  onr  merchants.  For  the  extinguishment 
of  tires  the  city  is  supplied  with  4,300  hydrants  and 
216  water  reservoirs,  containing  from  10,000  to 
60,000  gallons  of  Avater  each. 

Yon  and  the  citizens  Avill  thus  see  that  Boston  is 
well  protected  against  the  dangers  of  lire,  or  rather 
that  it  is  well  provided  witli  the  means  of  extinguish- 
ing it. 

Tlie  cost  of  the  department  for  the  3’ear  ending 

A})ril  30,  1879,  was  . ...  . . $444,154  17 

Add  (charges  for  water  nnd  hydrnnts  . . . 124,230  00 

$568,384  17 


MAYOR’S  ADDRESS. 


59 


The  Commissioners  thinlv  the  amount  charged 
against  the  department  for  the  use  of  water,  care 
of  hydrants,  etc.,  excessive,  the  same  being  twelve 
per  cent,  of  the  whole  water  income;  they  assert 
that  the  cost  of  the  water  actually  consumed  in  the 
extinguishment  of  tires  at  the  meter  rates  charged 
mannfiicturing  establishments,  would  not  exceed 
$1,500.  It  would  seem  that  if  this  complaiut  be 
well  fouuded,  a reduction  should  he  made. 

The  Fire  Commissioners  lucommend  the  pension 
of  firemen  injured  in  the  service,  or  who  have  become 
too  old  to  coutiuiie  in  it.  I think  our  tax-payers 
Avould  uot  object  to  your  making  some  proAusion  for 
the  benefit  of  those  who  are  so  constantly  exposed  to 
the  perils  of  their  dangerous  Avocation.  We  recom- 
pense to  some  extent  the  policeman  Avho  has  suffered 
in  defence  of  the  peace  of  the  city ; there  would  seem 
to  be  equal  reason  in  relieving  the  necessities  of  the 
fireman  whose  ability  to  provide  for  himself  has  been 
destroyed  by  his  devotion  to  duty. 

POLICE  DEPARTMENT. 

This  department  is  now  under  the  control  of  the 
Board  of  Police  Commissioners.  The  number  of  men 
on  the  force  is  seven  hundred.  The  estimated  cost  of 
the  department  for  the  financial  year  which  ends 
April  30,  1880,  is  $802,685.07. 


60 


MAYOR’S  ADDRESS. 


Number  special  police  appointed  during  the  year 
“ Department  police  appointed  . 

‘‘  Railroad  police  appointed 
“ Private  detectives  licensed 
“ Street  railway  licenses  issued 
“ Amusement  licenses  issued  . 

‘‘  Miscellaneous  licenses  issued 
“ Applications  for  licenses 
“ Licenses  issued  .... 

“ Licenses  revoked  . . . ^ . 

“ Seizures  ..... 

Gallons  liquor  seized 
“ Unlicensed  places  .... 

Total  fees  received  for  liquor  licenses 
Total  fees  received  for  other  licenses  . 

Total  receipts  of  department 


. ''  54 

36 
226 
10 

. 1,865 
. 303 

. 4,921 
. 2,853 
. 2,173 
22 

. 271 

. 3,206 
85 

. $237,657  00 
7,168  25 


. $244,825  25 


As  everything  which  properly  belongs  to  a depart- 
ment should  be  under  its  management^  this  Board 
should  have  the  control  of  the  City  Prison  and  the 
Harbor  Master.  I recommend  an  application  to  the 
Legislature  far  a change  of  the  law,  so  that  it  may 
have  this  control. 


LAMP  DEPARTMENT. 

The  committee  on  this  department  and  the  Super- 
intendent of  Lamps  have  shown  during  the  last  year 
commendable  efforts  to  reduce  expenses,  and  these 
efforts  liave  lieen  attended  with  much  success. 


The  appropriations  for  the  year  1879-80  were  . . $400,000  00 

There  has  been  expended  to  1st  Jan.,  1880  . . 284,785  51 


The  balance 


. $115,214  49 


MAYOR’S  ADDRESS. 


61 


will  be  sufficient  to  meet  all  expense  for  the  re- 
mainder of  the  financial  year. 

As  there  has  been  so  much  complaint  in  the  past  of 
the  great  and  increasing  cost  of  lighting  onr  streets, 
I wonld  say  that  the  Superintendent  reports  that  this 
is  ” to  he  traced  directly  to  annexation,  as  one-half  of 
all  the  street  lamps  are  located  within  the  annexed 
territory,  and  more  than  one-half  of  the  appropriation 
is  expended  outside  the  city  limits.  There  are  at  the 
present  time  over  400  miles  of  streets  and  places 
lighted  by  the  department,  covering  a more  extensive 
territory  than  any  other  similar  department  in  the 
country.  The  length  of  streets  lighted  in  the  old  city 
limits  in  1867  was  only  85  miles.’’ 

The  cost  of  gas  outside  is  much  more  than  that 
within  these  limits.  The  price  paid  for  the  gas  for  the 
city  proper  is  $1.75  per  thousand  cubic  feet,  — a re- 
duction of  fifteen  cents  per  thousand  feet  from  the 
price  of  1878;  that  of  the  eight  different  municipal 
districts  averages  $2.46|  per  thousand  feet.  The  re- 
duction in^the  price  of  gas  for  the  city  proper  effected 
a saving  of  $8,000  per  annum. 

The  increase  in  the  number  of  lamps  for  the  last 
twelve  years  is  6,757,  being  an  annual  average  of  563. 
The  total  number  of  lamps  at  this  time  is  12,415. 

The  experiment  of  substituting  the  three-feet  burner 
for  the  four-feet  burner  hitherto  used  was  made  in 


62 


MAYOR’S  ADDRESS. 


the  early  part  of  the  year,  by  which  a saving  of  about 
$40,000  will  he  made  during  the  year. 

The  Superintendent  advises  the  lighting  of  the 
Public  Garden  and  of  some  of  our  squares,  which  are 
broad  and  unsafe  to  the  pedestrian,  by  the  great  lan- 
terns recently  adopted  in  London,  in  which  large  jets 
of  gas  are  used,  consuming  twenty  cubic  feet  or  more 
per  hour,  if  experiment  demonstrates  their  success. 
Such  jets  "are  said  to  rival  the  famed  electric  light  in 
hrilliancy,  at  far  less  cost." 

The  department,  with  a view  to  economy,  permitted 
experiments  in  May  last  by  the  Globe  Gas  Light 
Company  and  the  U.  S.  Street  Lighting  Company, 
at  their  own  expense,  in  substituting  the  gasoline 
lamps  on  about  300  city  gas  lamps.  It  was  not  found 
that  these  lamps  " gave  such  satisfaction  as  warranted 
their  continuance,  and  they  were  abandoned." 

The  department  also  considered  proposals  for  light- 
ing lamps  by  the  pneumatic  electric  system,  and  gave 
the  parties  interested  in  it  a lengthy  hearing ; but  it 
was  not  ])roved  that  the  advantages  of  the  system 
were  sutlicient  to  justify  the  cost  of  its  adoption. 
The  City. of  Providence,  which  has  hitherto  used  this 
mode  of  lighting  a portion  of  its  lamps,  has  recently 
decided 'to  abandon  it. 


MAYOR’S  ADDRESS. 


63 

assessors’  departmext. 

By  the  returns  of  the  Assessors  it  appears  that 
the  real  and  personal  estate  liable  to  taxation 
was  assessed  at  .....  . $013,322,691 

Showing  a loss  in  real  estate  of  . $11,59(S,900 

And  a loss  in  personal  estate  of  . 5,525,275 

Total  loss  since  1878  . . $17,124,175 

The  highest  valnation  was  that  of  1874  . . $798,755,050 

Since  then  there  has  been  a reduction  every  year. 
The  reductions  during  the  last  five  years  amount  to 
1185,432,359. 

The  Assessors  are  of  opinion  that  for  the  present  at 
least  there  a\  ill  he  no  farther  decline  in  the  Amine  of 
onr  real  and  personal  estate.  They  \vd\e  been  called 
to  make  feAA  er  abatements  for  OAmr  Amlnation  during 
the  last  year  than  in  any  year  since  1875.  This  ac- 
quiescence of  the  tax-payers  in  the  appraisal  of  last 
year  is  deemed  satisfactory  evidence  that  the  valua- 
tion AA  as  substantially  just  and  correct. 

The  taxation  of  last  year  Avas  $12.50  per  thousand 
dollars,  being  30  cents  per  thousand  less  than  that  of 
1878,  the  loAvest  rate,  Avith  one  exception,  since  the 
close  of  the  Avar,  — that  of  1872  being  $11.70  per 
thousand,  — and  the  aAAumge  rate  for  the  past  fifteen 
years  has  been  $13.50  per  thousand. 

If  the  same  amount  of  taxes  had  been  leAued  in 
1879  AA  hich  Avas  leAued  in  1878,  the  rate  Avould  Irdve 


64: 


MAYOR’S  ADDRESS. 


been  increased,  because  the  valuation  was  reduced  as 
above  stated. 


The  tax  warrants  for  1878  amounted  to  . . $8,241,545 

Those  for  1879  were  ......  7,845,369 

Decrease  ........  $396,176 


The  Assessors  advise  a change  in  the  law  so  that 
in  suits  for  taxes  against  those  ” who  are  citizens  for 
all  purposes  except  paying  their  part  of  the  costs  of 
Government,”  the  defendants  shall  not  be  permitted 
to  change  the  venue  to  the  counties  where  they  claim 
to  reside,  that  more  impartial  and  unprejudiced  ver- 
dicts may  be  secured. 

The  work  of  the  Assessors  is  very  arduous,  and 
when  it  is  remembered  that  since  the  enactment  of  the 
General  Statutes  in  1860,  more  than  one  hundred  laws 
touching  the  assessment  and  collection  of  taxes  have 
been  passed,  we  can  ajipreciate  their  labors.  Mistakes 
doubtless  liave  sometimes  been  made.  It  could  hardly 
be  otherwise ; but  I think  it  will  be  generally  conceded 
that  the  important  and  difficult  duties  of  this  depart- 
ment have  been  well  and  successfully  performed. 


IKSPECTIOX  OF  MILK. 


Idle  report  of  the  Inspector  of  Milk  shows  that  in 
his  official  visits,  in  the  inspection  and  analysis  of 


MAYOR’S  ADDRESS. 


65 


milk,  in  the  prosecution  of  offenders,  and  in  other 
duties,  he  has  been  diligent  and  active. 

If  the  interests  of  the  citizens  require  the  inspection 
of  milk,  the  inspection,  to  he  valuable,  shonld  he  thor- 
ough. It  is  impossible  for  one  Inspector  to  supervise 
all  the  dealers  throughout  the  city.  He  shonld  be 
assisted.  Tlie  department,  as  the  Inspector  suggests, 
shonld  be  reorganized. 

As  experience  is  necessary  to  enable  this  officer  to 
know  those  who  deal  in  milk,  and  give  him  a proper 
understanding  of  his  duties,  he  shonld  be  appointed 
for  the  term  of  three  years,  like  the  heads  of  other 
departments,  and  not  as  now,  annually.  An  act  of 
the  Legislature  would  be  required  to  make  this 
change.  I think  the  Inspector  is  entitled  to  more 
compensation  than  he  now  receives  for  the  work  he 
performs. 

Yon  will,  of  course,  give  these  suggestions  such 
consideration  as  the  interests  of  this  department 
demand. 

PUBLIC  RECORDS. 

I desire  to  call  your  attention  to  the  condition  of 
some  of  the  ^mblic  records  from  1650  to  1775.  These 
papers  comprise  "original  grants,  deeds,  bills  of  sale, 
wills,  depositions,  inquests,  executions,  surveys,  and 
all  the  variety  of  documents  used  in  the  provincial 


66 


MAY  OK’S  ADDRESS. 


and  colonial  courts.”  They  are  valuable  historically 
and  otherwise.  They  are  now  stored  in  the  basement 
of  the  Court  House,  where  damp  air  and  the  rats  are 
fast  destroying  them. 

The  Board  of  Aldermen,  acting  as  County  Commis- 
sioners, are  required  by  law,  under  penalties,  to  pro- 
vide ”a  suitable  place  for  the  safe-keeping  and  pres- 
ervation of  valuable  documents  belonging  to  the 
county,”  and  when  the  records  ''are  becoming  worn, 
mutilated  or  illegible,”  it  must  have  "fair,  legible 
copies  seasonably  made,”  to  be  "preserved  in  like 
manner  as  the  original  records,  papers,  and  docu- 
ments.” 

I advise  an  appropriation  sufficient  to  carry  out  the 
statute  requirements. 

The  Trustees  of  the  Public  Library  are  willing  to 
receive,  arrange,  classify,  copy,  and  safely  keep  these 
records  and  papers.  I recommend  that  they  be 
placed  in  their  custody  for  these  purposes. 

CITY  CHARTER. 

r should  consider  my  official  duties  on  this  occasion 
inq)erfectly  performed  if  I did  not  renew  the  recom- 
mendations ol*  my  last  inaugural  address  touching  a 
revision  of  the  City  Chaifer.  It  is  generally  admitted 
that  important  changes  in  this  instrument  are  required 
by  tlie  great  growth  of  the  city  and  the  consequent 


MAYOR’S  ADDRESS. 


67 


multiplication  of  its  departments,  with  all  their  in- 
creasing business.  It  is  a piece  of  patchwork, 
wanting  in  unity,  consistency,  and  logical  harmony. 
Diversity  of  opinion  as  to  the  character  of  the  needed 
changes  has  alone  prevented  action  therein.  I trust 
you  will  give  the  matter  the  consideration  which  its 
importance  demands  and  the  interests  of  the  city 
require. 

CITY  STATUES. 

During  the  past  year  the  statue  of  Josiah  Quincy, 
erected  from  the  Phillips  fund,  was  received  and 
placed  in  front  of  City  Hall.  It  was  designed  and 
executed  by  Thomas  Ball,  and  is  generally  regarded 
as  a successful  representation  of  our  distinguished 
Chief  Magistrate. 

The  bronze  group  symbolizing  the  Abolition  of 
Slavery  in  the  United  States,  the  gift  of  our  munifi- 
cent felloAV-citizen,  the  Hon.  Moses  Kimball,  has  been 
erected  in  Park  square.  These  statues  will  not  only 
adorn  the  city,  but  inspire  and  instruct  our  citizens 
by  their  eloquent  lessons  of  patriotism,  philanthropy, 
and  justice. 

The  City  Council  of  last  year  directed  the  con- 
struction of  two  other  statues  of  bronze  — one  of 
Governor  Winthrop,  the  other  of  that  distinguished 
patriot,  Samuel  Adams.  Their  cost  will  be  paid  from 


(58 


M A Y O R ’ S AD  D R ESS. 


the  Phillips  fund,  and  it  is  expected  that  they  will  he 
completed  in  July  next. 

There  are  other  matters  of  municipal  interest  to 
which  I desire  to  draw  your  attention,  especially  those 
relating  to  our  harbor  defences,  and  to  the  proposed 
improvements  at  Scitnate  for  a harbor  of  refuge  for 
vessels  coming  to  Boston  in  dangerous  weather,  hut 
as  I ha.ve  already  occupied  so  much  of  your  time  I 
Avill  mate  them  the  subject  of  future  communication. 

This  year  of  1880  makes  an  era  in  our  history. 
The  seventeenth  day  of  the  coming  September  will 
he  the  two  hundred  and  fiftieth  anniversary  of  the 
settlement  of  Boston.  It  is  expected  that  we  should 
distinguish  the  event  by  some  proper  civic  commemo- 
ration. Your  judgment  will  determine  what  befits 
the  occasion.  The  statues  *of  Governor  Winthrop 
and  Samuel  Adams  will  be  then  completed,  and, 
without  doubt,  you  will  deem  it  appropriate  to  dedi- 
cate them  oil  our  natal  day.  As  there  are  many  in- 
teresting unprinted  records  of  our  early  town  meetings 
and  other  municipal  transactions,  most  valuable  as 
iltiistrating  the  political  and  social  history  of  Boston, 
it  has  been  suggested  that  it  would  be  a proper  time 
to  secure  some  of  them  f*roni  the  dangers  incident  to 
niamisci‘i])t  l)y  their  publication  in  a memorial,  as  a part 
of  the  celebration.  1 would  that  all  our  record  could 
thus  be  ])reserved  and  made  known,  for  we  may  be 


MAYOR’S  ADDRESS. 


69 


proud  of  it.  Boston  in  all  her  history  has  been  con- 
spicions  for  her  patriotism,  for  her  devotion  to  the 
cause  of  civil  and  religions  liberty,  and  for  the  sacri- 
fices she  has  made  in  its  behalf.  She  was  among  the 
first  to  protest  against  the  tyinnny  of  the  British 
Crown,  and  in  Faneuil  Hall  it  may  be  claimed  that 
the  Bevolntion,  which  cnlminated  in  American  inde- 
pendence, was  organized.  She  has  always  exercised 
a marked  influence  upon  national  thought  and  national 
action.  She  has  been  foremost  in  recognizing  those 
humanities  which  mark  the  progress  of  civilization, 
foremost  in  establishing  benevolent,  charitable,  and 
philanthropic  institutions,  foremost  in  promoting 
popular  education  through  the  free  school,  and  fore- 
most in  promoting  moral  culture.  Through  the 
energy,  enterprise,  intelligence,  and  integrity  of  her 
citizens,  she  has  attained  great  material  prosperity. 
Let  us  hope  that  these  virtues  will  long  distinguish 
them,  and  when  another  cycle  of  two  hundred  and 
fifty  years  is  added  to  our  history,  it  may  he  found 
that  the  invocation  on  our  city  seal  has  been  realized  — 
that  as  God  was  with  the  fathers,  so  has  he  continued 
to  be  with  us. 


APPENDIX. 


Schedule  of  the  Saleable  Lands  and  Buildings^  exempt  from 
Taxation,  not  wanted  for  Municipal  purposes. 


Property  and  Location. 


Townway,  Medford  st 

Land  rear  30  Belmont  st 

“ opposite  Almshouse 

Almshouse  estate 

Continuation  of  Townway 

Land  June,  of  Essex  & Lyndeboro’  sts. 

“ Hanover  ave 

“ Causeway  st 

•“  and  Buildings,  72  Cambridge  st. 

“ “ 84  Joy  st 

Reservoir,  Derne  st.,  etc 

Land  cor.  Harrison  ave.  and  Beach  st. 

“ on  Newbury  st 

“ June.  Columbus  ave.  & Eliot  st. 

“ Pleasant  st 

“ High  st 

“ Washington  sq 

“ Oliver  st 


Ward. 

Valuation 

Land. 

Valuation 

Buildings. 

Total  Value. 

3 

-$1,400 

o 

o 

4 

100 

100 

4 

5,000 

5,000 

4 

20,800 

$22,500 

43,300 

4 

2,300 

2,300 

4 

800 

800 

6 

1,800 

1,800 

7 

700 

700 

9 

6,500 

900 

7,400 

9 

2,000 

800 

2,800 

10 

147,500 

52,500 

200,000 

10 

43,000 

43,000 

11 

8,500 

8,500 

11 

.133,800 

133,800 

11 

5,000 

5,000 

12 

5,500 

5,500 

12 

300 

300 

12 

2,500 

2,500 

12 

2,000 

2,000 

Purchase  st. 


Property  and  Location. 


Land  Broadway  extension 

“ W.  Third  st 

“ L and  E.  First  sts 

“ L and  E.  First  and  E.  Second  sts. 

“ L,  Second,  and  Third  sts 

“ E.  Third 

“ E.  Broadway 

“ E.  Third  st 

“ L and  E.  Second  sts 

“ L and  E.  First  sts 

“ M and  E.  First  sts 

“ on  E.  Fourth  st • 

“ on  E.  Third  st 

“ on  N and  E.  Second  sts 

“ on  N and  E.  Third  sts 

“ on  N and  E.  First  sts 

“ on  Middlesex  st 

“ and  building  on  Bristol  st 

“ on  E.  Dedham  st 

“ on  W.  Rutland  sq 

“ on  Pembroke  st 

“ on  Harrison  ave 

“ and  Building  on  Harrison  ave.  . 
“ “ 57G  Harrison  ave. . 

“ on  E.  Springfield  st 

“ on  E.  Cliester  park 


Valuation 

Land. 

V.al  nation 
Buildings. 

Total  Value. 

$17,300 

$17,300 

1,000 

1,000 

4,100 

4,100 

3,700 

3,700 

10,000 

10,000 

1,400 

1,400 

2,800 

2,800 

14,500 

14,500 

34,200 

34,200 

25,000 

25,000 

25,400 

25,400 

5,000 

5,000 

0,400 

0,400 

9,700 

9,700 

2,200 

2,200 

12,700 

12,700 

2,100 

2,100 

30,000 

5,000 

35,000 

10,200 

10,200 

34,400 

34,400 

. 2,800 

2,800 

27,100 

27,100 

31,500 

31,500 

202,500 

202,500 

5,100 

5,100 

50,000 

50,000 

CS 

13 

13 

14 

14 

14 

14 

14 

14 

14 

14 

14 

14 

14 

14 

14 

14 

10 

10 

17 

18 

18 

18 

18 

18 

18 

18 


APPENDIX. 


73 


Property  and  Location, 


Land  on  Albany  st 

“ on  E.  Concord  st 

“ on  Harrison  ave 

“ on  E.  Newton  st 

“ on  Stoughton  st 

“ E.  Newton  st 

“ and  buildings,  952-990  Harrison 
ave 

“ and  buildings,  948-950  Harrison 
ave 

“ and  buildings,  930-946  Harrison 
ave 

“ on  west  side  Fellows  st 

“ foot  Fellows  pi 

“ on  west  side  Fellows  st 

“ and  buildings,  2 Fellows  st 

“ on  west  side  Brown  st 

“ on  east  side  Fellows  st 

“ house,  and  barn,  11  Hunne- 
man  st 

“ and  house  south  side  Hunne- 
man  st 

“ Small-pox  Hospital,  Swett  st.  . . 

“ cor.  Hamlet  and  Boston  sts.  . . . 

“ on  Boston  st 

“ cor.  George  and  Shirley  sts.  . . . 

“ on  Shirley  st 

“ and  Marsh,  Plymoutli  st 


Valuation 

Land. 

Valuation 

Buildings. 

Total  Value. 

$15,000 

$15,000 

5,000 

5,000 

13,000 

13,000 

4,600 

4,600 

104,000 

104,000 

39,600 



39,600 

36,000 

26,500 

63,100 

5,300 

1,500 

6,800 

14,900 

1,500 

16,400 

24,200 

1 

24,200 

3,300 

3,300 

12,000 

12,000 

1,600 

700 

2,300 

2,800 

2,800 

5,100 

5,100 

5,000 

300 

5,300 

2,900 

400 

3,300 

33,500 

2,500 

36,000 

600 

600 

400 

400 

1,000 

1,000 

500 

500 

14,200 

14,200 

S 

18 

18 

18 

18 

18 

18 

20 

20 

20 

20 

20 

20 

20 

20 

20 

20 

20 

20 

20 

20 

20 

20 

22 


74 


APPENDIX. 


Property  and  Location.  1 

rt 

Valuation 

Land. 

Valuation 

Buildings. 

Total  Value. 

Land  and  House,  Plymouth  st 

22 

P,400 

$3,500 

$G,90U 

“ “ “ 

22 

1,100 

3,500 

4,G00 

» 4 4 4 4 4 

22 

1,100 

3,500 

4,  GOO 



22 

3,400 

3,500 

G,900 

22 

5,100 

5,100 

li 

22 

5,100 

5,100 

22 

5,100 

5,100 

“ Tr<^m<^nt  st 

22 

55,500 

55,500 

“ riilisnn  st 

24 

2,100 

2,100 

4 4 4 4 

24 

1,900 

1,900 

on  40-fnnt  .'st 

24 

1,300 

1,300 

Marsh,  Milton  Br.  R.R 

24 

100 

100 

T,nnfl  T4nrpbpstP'T’  nVf' 

24 

14,000 

14,000 

City  Hotel  property,  Washington  st. . . 

25 

37,000 

5,000 

42, GOO 

Poor  Farm 

25 

4,900 

3,000 

7,900 

Land,  cor.  Pleasant  and  Franklin  sts. 

25 

300 

300 

T-Till  nvr»  . 

24 

1,000 

1,000 

^1,454,700 

$137,100 

$1,591,800 

The  above  does  not  include  wharf  property  or  islands  in  the  harbor, 
owned  by  the  city. 


APPENDIX. 


75 


Gross  Funded  Debt,  Dec.  31,  ’79,  was  $43,022,816.23,  which 
matures  and  is  pa3^able  as  follows  : — 


In  1880 
1881 
1882 

1883 

1884 

1885 

1886 

1887 

1888 

1889 

1890 

1891 

1892 

1893 

1894 

1895 

1896 

1897 

1898 

1899 

1900 

1901 

1902 

1903 

1904 

1905 

1906 

1907 

1908 

1909 


Demand  notes  of  old  town  of  Brighton  outstanding 
Overdue  — matured  bond,  not  presented  for  pa^^- 
ment  ........ 


$4,328,950  00 
228,000  00 
1,008,500  00 
1,206,000  00 

990.000  00 

529.000  00 

1.323.000  00 

1.138.000  00 

1.624.000  00 

911.000  00 

414.000  00 

2.163.000  00 

1.576.000  00 
6,372,603  73 

2.823.000  00 

228.000  00 
Nothing. 

775.000  00 

1.090.000  00 
4,672,847  92 

Nothing. 

1.643.000  00 
2,047,273  98 

905.000  00 

46.000  00 
1,357,700  00 
2,647,300  00 

15.000  00 

600.000  00 
350,000  00 

3,140  60 

8,000  00 


$43,022,816  23 


A P P E N DI X . 


76 

City  Debt,  Dec.  31,  1879  . . $29,768,542  25 

C.  Water  Debt,  Dec.  31,  1879  . 12,101,273  98 

Mystic  Water  Debt,  Dec.  31,  1879,  1,153,000  00 

$43,022,816  23 


Sinking  Funds  and  other  available  means  for  the  payment  of  the 

debt  on  Dec.  31,  1879  : — 

Old  Sinking  Fund  .... 

. $8,101,438  98 

Consolidated  Street  Improvement 

. 1,281,017  14 

Burnt  District  ..... 

. 1,539,464  26 

New  Sinking  Fund  .... 

. 3,201,383  69 

Cochituate  Water  Fund 

. 2,196,788  15 

M}"stic  Water  Fund  .... 

257,118  38 

Mone^^s  for  reduction  of  debt 

975  87 

$16,578,186  47 

Public  Land  Bonds,  Street  Improvement, 

and  other 

bonds  available  for  payment  of  debt 

348,852  75 

$16,927,139  22 

Outstanding  debt  to  l)e  redeemed  by  each  Sinking  Fund  : — 

Old  Sinking  Fund  .... 

. $9,646,590  60 

Consolidated  Street  Improvement 

. 3,391,847  92 

Burnt  District  ..... 

. 5,702,103  73 

New  Sinking  Fund  .... 

. 11,028,000  00 

Cochituate  Water  .... 

. 12,101,273  98 

Mystic  Water  ..... 

. 1,153,000  00 

$43,022,816  23 


APPENDIX. 


77 


Authorized  Loans  not  yet  negotiated  or  issued,  Dec.  31, 1879  : — 


English  Pligh  and  Latin  School  Buildings,  order  of 
May  25,  1877  ....... 

Roxbury  Canal  Improvement,  order  July  16,  1878 
Northampton-street  District,  order  April  26,  1879 
Improved  Sewerage,  order  Aug.  9,  1877 
Widening  Commercial  street,  order  Dec.  31,  1877 
Extension  South  street,  order  Dec. 

27,  1879  140,000  00 

Extension  Commonwealth  avenue, 

order  Dec.  27,  1879  . . . 135,000  00 


$75,000  00 

41.000  00 
241,000  00 

2,306,000  00 

50.000  00 


275,000  00 
$2,988,000  00 


Rate  of  interest  paid  on  Loans  issued  during  the  last  ten 
years : — 


4%  on 
41%  on 
5%  on 
6%  on 


$2,395,000  00 
1,368,000  00 
9,524,127  00 
22,281,000  00 


Average  rate  on  the  total  funded  debt  paid  during  the  last  ten 
years  is  5yV^8^%. 


THE 


INAUGURAL  ADDRESS 

OF 

FREDERICK  0.  PRINCE, 

MAYOR  OF  BOSTON, 

TO 

THE  CITY  COUNCIL, 


JANUARY  13,  1881. 


BOSTON: 

ROCKWELL  & CHURCHILL,  CITY  PRINTERS,  . 


No.  39  ARCH  STREET. 


THE 


INAUGURAL  ADDRESS 

OF 

FREDERICK  0.  PRINCE, 

MAYOR  OF  BOSTON, 


THE  CITY  COUNCIL, 


JANUARY  13,  1881. 


BOSTON: 

ROCKWELL  & CHURCHILL,  CITY  PRINTERS, 


No.  39  ARCH  STREET. 
18  8 1. 


/. 


V 


CITY  OF  BOSTOY. 

In  Common  Council,  January  3,  1881. 

Ordered,  That  His  Honor  the  Mayor  be  requested  to 
furnish  a copy  of  his  Address,  that  the  same  may  be 


printed. 

Sent  up  for 

concurrence. 

ANDREW  J.  BAILEY, 

President. 

In  Board  of  Aldermen,  January  10,  1881 


Concurred. 

HUGH  O’BRIEN, 

Chairman. 


ADDRESS. 


N 


Gei^tlemen^  of  the  City  Coui^cil  : — 

You  have  been  appointed  by  the  citizens  of  Boston 
to  administer  their  mnnicipal  affairs  during  the  ensu- 
ing year.  It  is  not  necessary  for  me  to  remind  you 
that  the  responsibilities  you  have  assumed  are  grave 
and  onerous.  The  successful  management  of  the 
concerns  of  a large  city  like  this  requires  at  all 
times  close  attention,  watchful  care,  and  wise  judg- 
ment. At  the  present  time  there  will  be  an  excep- 
tional draft  on  your  administrative  ability,  for  you 
will  be  called  to  consider  and  act  upon  many  impor- 
tant matters,  affecting  not  only  the  present  but  the 
future  interests  of  the  city,  and  involving  the  expen- 
diture of  large  sums  of  money. 

Our  municipal  departments  are  so  well  organized 
that  the  Council  has  less  to  consider  respecting  the 
methods  by  which  business  therein  is  done,  than  the 
policy  to  be  adopted  respecting  the  business ; and  I 
may  here  say  that  my  experience  leads  me  to  believe 
that  most  of  the  departments  are  well  managed,  and 
with  reasonable  economy.  Doubtless  there  is  room 
for  improvement.  It  would  be  strange  were  it  other- 


6 


M A Y (>  R ’ S ADDRESS. 


wise,  since  experience  is  constantly  suggesting  new 
ideas  in  the  inanagement  of  all  business,  especially 
in  that  pertaining  to  public  affairs.  There  is  an  old 
saying,  that  the  Idng  pays  twice  as  much  as  any  other 
person  for  all  he  buys.  I do  not  think  that  this  is  the 
case  with  the  City  of  Boston.  All  its  important  work 
has  been  done  by  contract  with  the  lowest  responsible 
bidders ; and  it  is  but  justice  to  those  who  have  made 
the  contracts,  and  supervised  the  work  thereunder, 
to  add,  that  the  prices  have  always  been  reasonable 
and  the  work  faithfully  performed. 

The  most  serious  and  impoi-tant  part  of  your  duties 
will  l)e  the  consideration  of  measures  which  will 
reduce  or  augment  the  departmental  appropriations. 
Yon  will  be  called  to  tread  the  difficult  way  between 
the  just  demands  and  reasonable  claims  of  the  public 
interests  on  one  side,  and  the  ever  dissatisfied  and 
complaining  tax-payer  on  the  other.  Yon  must  nicely 
discriminate  amid  many  embarrassments,  so  that  the 
clamor  of  the  sordid  may  not  be  mistaken  for  the 
true  expression  of  pul)lic  opinion. 

You  cannot  ex])cct  to  satisfy  every  one.  Many 
measiu*es  may  ('ommend  themselves  to  yom*  judg- 
ment as  ])eing  foi*  tlie  best  interests  of  the  city,  which 
will  be  op])osed  on  insufficient  and  unreasonable 
grounds.  Many  things  requiring  time  for  the  de- 
velo])meut  of  their  benefits  may  seem  to  yon  proper 


M A Y O K ’ S ADDRESS. 


7 


for  adoption,  which  an  impatient  public,  swayed  by 
prejudice  or  passion,  may  not  appreciate.  In  such 
cases  duty  may  call  for  the  exercise  of  high  moral 
courage.  I trust  that  the  draft  will  be  dnly  honored. 
We  are  not  entitled  to  occupy  onr  places,  and 
shonld  not  have  accepted  them,  if,  after  carefnlly 
considering  all  the  questions  that  come  before  ns, 
and  reaching  a conviction  in  respect  to  onr  action 
therein,  we  show  ourselves  wanting  in  the  courage 
of  onr  convictions. 

The  municipal  election  which  has  placed  ns  in 
office  Avas  marked  by  iiimsnal  interest  and  excite- 
ment. The  most  prominent  issue  of  the  can\mss  was 
the  alleged  extravagance  of  the  last  city  gOA^ernment. 
It  Avas  declared  by  those  who  opposed  that  govern- 
ment, ” That  the  present  high  rate  of  taxation  is  due 
to  injudicious  and  extra A^agant  expenditures,  and  that 
it  cannot  be  continued  without  driving  capital  away 
from  onr  city,  injuring  all  classes  of  business  and 
diminishing  the  demand  for  labor.” 

Is  this  charge  true,  or  is  it  merely  the  old  battle- 
cry  of  those  out  of  office  who  are  trying  to  get  in? 

In  my  last  inaugural  address  I told  the  Council 
that  ” whenever  there  is  complaint  of  municipal  ex- 
traA^agance  the  Mayor  is  the  object  of  censure;  yet, 
such  is  the  limitation  of  his  power  and  influence 
under  onr  system,  the  City  Council  is  in  fact  the  re- 


8 


MAYOR’S  ADDRESS. 


sponsible  party.  The  Mayor  cannot  draw  a dollar 
from  the  treasury  for  any  civic  purpose  without  the 
consent  of  the  Council.  The  law  directs  the  Mayor, 
to  quote  the  words  of  the  charter,  ”to  communicate 
to  both  branches  of  the  City  Council  all  such  infor- 
mation, and  recommend  all  such  measures,  as  may 
tend  to  the  improvement  of  the  finances,  the  police, 
health,  security,  cleanliness,  comfort,  and  ornament  of 
the  city ; ” but  the  wisdom  of  the  Council  determines 
the  adoption  of  these  measures  and  the  action  to  be 
had  therein.  The  functions  of  the  Mayor  in  respect 
to  the  inauguration  of  civic  measures  are  merely  ad- 
visory. He  has,  it  is  true,  the  veto  power;  but  when 
the  Council  by  a two-thirds  vote  orders  any  matter, 
it  becomes  the  duty  of  the  Executive  to  see  that  the 
will  of  the  Council  is  obeyed. 

If,  then,  there  has  been  extravagance,  as  alleged, 
the  censure  which  should  follow  it  must  fall  on  the 
Council;  but  nine  of  the  last  Board  of  Aldermen 
(six  of  whom  were  supported  by  the  allegators  of 
extravagance),  and  thirty-eight  of  the  last  Council- 
men,  have  been  reelected. 

Tliis  fiict  would  be  generally  regarded  as  evidence 
that  your  constituents  did  not  believe  the  charge  of 
extravagance.  I endorse  all  that  has  been  said  dur- 
ing the  election,  in  respect  to  economy  in  the  expen- 
diture of  the  public  money.  It  is  at  all  times  a duty. 


MAYOR’S  ADDRESS. 


9 


Xo  citizen  should  he  compelled  to  surrender  to  the 
tax-gatherer  more  of  his  earnings  than  is  needed  for 
an  honest  and  economical  support  of  government, 
regard  being  had  to  the  health,  comfort,  and  safety 
of  onr  citizens.  We  ought  always  to  he  willing  to 
be  tried  by  this  test,  and  onr  constituents  should  be 
satisfied  if  it  vindicates  ns. 

In  view  of  the  gravity  of  the  matter,  and  for  your 
benefit  when  yon  make  the  appropriations  for  the 
current  year,  I propose  to  examine  the  principal 
expenditures  of  1880,  to  ascertain  why  the  taxes  of 
that  year  were  so  large,  and  if  we  have  spent  more 
than  we  should. 

The  amount  raised  by  taxation  in  1879  was  $7,492,510,  dis- 


tributed  as  follows  : — 
State  tax  . 

$206,370 

Rate  of  same. 

$ 

20 

County  tax 

369,200 

Rate  of  same, 

46 

Cit}'  tax 

6,916,740 

Rate  of  same. 

11 

GO 

Rate  per  $1,000  . 

. 

$12 

50 

The  amount  raised  b}’  taxation  in  1880  was  $9,460,876,  distrib- 
uted as  follows : — 

State  tax  ....  $019,110  Rate  of  same,  $ 86 

Count}'  tax  . . . 200,000  Rate  of  same,  27 

City  tax  ....  8,587,786  Rate  of  same,  14  07 

Rate  per  $1,000  . 


$15  20 


10 


MAYOR’S  ADDRESS. 


Difference  between  the  taxes  of  1880  and  1879  . $1,974,386 

The  State  and  county  taxes  of  1880  were  $879,110 

The  State  and  county  taxes  of  1879  were  575,570 

Difference  in  these  taxes  ......  303,540 

The  city  taxes,  exclusive  of  State  and  county  taxes,  of 

1880,  exceeded  those  of  1879.  ....  $1,670,846 

What  has  caused  this  increase? 

There  was  a decrease  at  the  beginning  of  the  last  finan- 
cial year  in  unexpended  balances  and  income  from 


those  of  the  preceding  year  amounting  to  . . $445,625 

Increased  appropriation  for  Back  Bay  ....  205,000 

Increased  taxation  for  Sinking-Funds  . . . . 97,950 

Increased  taxation  for  Paving  Department  . . . 300,000 

Increased  taxation  for  School  Department  . . . 215,500 

Increased  taxation  for  Fire  Department  and  Engineer  . 38,150 

Increased  taxation  for  Police  Department  . . . 42,592 

Increased  taxation  for  Sewer  Department  . . . 50,000 

Increased  taxation  for  Surveyor  Department  . . 5,000 

Increased  taxation  for  Street  Commissioners  (Essex-st. 

extension)  ........  50,000 

Increased  taxation  for  Bridges  .....  66,500 

Increased  taxation  for  City  Stable  repairs  . . . 7,000 

Increased  taxation  for  Public  Buildings  . . . 15,000 

Increased  taxation  for  Public  Institutions  . . . 7,700 

Increased  taxation  for  Board  of  Health  . . . 2,300 

Increased  taxation  for  City  Hospital  ....  11,500 

Increased  taxation  for  Collector’s  Department  . . 8,000 


Carried  forward^ 


$1,567,817 


MAYOR’S  ADDRESS. 


11 


Brought  forward^  $1,567,817 

Increased  taxation  for  Commons  and  Squares  . . 32,500 

Increased  taxation  for  Lamp  Department  . . . 13,000 

Increased  taxation  for  Law  Department  . . . 2,940 

Increased  taxation  for  Printing  and  Stationery  . . 8,400 

Increased  taxation  for  Health  Department  . . . 20,000 

Increased  taxation  for  celebration  (250th  anniversary).  25,000 

Total  increase  ......  $1,669,657 


The  aggregate  of  these  increased  aj)propriations 
is  thus  seen  to  be  $1,669,657.  Can  it  be  justly 
said  that  the  increase  in  these  different  appropri- 
ations was  so  unwisely  made  as  to  justify  the 
charge  of  extravagance?  The  Back-Bay  park  ex- 
penditure was  generally  conceded  to  be  proper, 
and  was  sanctioned  by  the  unanimous  vote  of  both 
branches  of  the  Council;  and  there  is  no  doubt 
that  the  amount  will  be  repaid  in  the  increased 
taxes  derived  from  the  increased  value  of  con- 
tiguous lands,  resulting  from  the  creation  of  the 
park.  This  is  not  theory  and  speculation.  It  is 
a demonstration  based  on  the  assessors’  valuation. 
The  new  school-houses  were  a necessity.  The 
amount  appropriated  for  the  Street  Department  was 
also  a necessity.  The  applications  on  tile  in  the 
office  of  the  Superintendent  of  Streets  showed  that 
the  citizens  demanded  repairs  on  onr  346  miles  of 
accepted  streets  to  the  extent  of  $2,500,000.  All 


12 


MAYOR’S  ADDRESS. 


the  estimates  of  tlie  cost  of  these  repairs  were 
carefully  and  critically  considered  by  the  Committee 
in  charge  of  the  Paving  Department,  and  they  de- 
manded $1,276,000  for  its  expenses.  A majority 
of  the  Committee  on  Appropriations,  after  much 
discussion,  advised  the  Council,  in  their  report,  to 
allow  this  de])artment  $900,000,  but  a minority  ad- 
vised $1,000,000.  The  subject  was  again  carefully 
considered  by  both  branches  of  the  Council,  and, 
as  a compromise  between  the  recommendations  of 
the  two  reports,  $950,000  was  finally  voted.  That 
this  sum  was  not  excessive  is  shown  by  the  fact 
that  many  of  our  streets  are  not  to-day  in  proper 
and  safe  condition,  and  yet  there  is  no  reason  to 
believe  that  the  Street  Department  has  not  pru- 
dently and  economically  expended  its  appropriation. 

The  extra  expenditures  of  the  Sewer  Department 
were  caused  l)y  the  necessity  of  abating  the  Stony- 
Prook  nnisance  ; those  of  the  Street  Commis- 
sioners, by  the  Essex-street  extension  ; those  of 
the  l)ridgcs,  by  the  rel)nilding  of  Chelsea  bridge 
and  the  repair  of  We  stern- avenue  bridge  ; those 
of  tlie  Lain])  Department,  by  the  general  complaint 
of  the  citizens  that  the  streets  were  not  sufficiently 
lighted  ; those  of  Pul)lic  Ifiiildings,  by  the  repairs 
reipiired  to  keep  them  in  tenantable  order  ; those 
of  the  (fity  Hospital,  for  the  same  reason  ; those 


M A Y O K ’ S ADDRESS. 


13 


of  the  Health  Department  by  the  great  increase 
of  work,  which  compelled  an  increase  of  expense  ; 
those  of  Public  Institutions,  by  the  additions  to 
the  Marcella-street  Home  and  the  increase  of 
pauper  expenses  ; those  of  the  City  Stables,  by 
repairs  and  the  necessity  of  a new  shed  ; those 
of  the  Surveyor’s  Department,  by  the  great  in- 
crease of  its  business  ; those  of  the  Police  and 
Fire  Departments,  by  the  extra  expenses  in  each  to 
keep  these  important  branches  of  the  government 
in  proper  condition.  I might  refer  to  other  items 
of  extraordinary  expenditure,  and  show  that  they 
conld  hardly  have  been  avoided  Avithout  jeopard- 
ing the  health,  convenience,  and  safety  of  our 
citizens. 

It  is  to  he  remembered  that  during  the  hard 
times  caused  l3y  the  long-continued  stagnation  in 
all  kinds  of  business,  every  municipal  expenditure 
Avhich  could  l^e  a\mided  without  injury  to  the 
interests  of  the  city  Avas  postponed  year  after 
year,  so  that  in  most  of  the  departments  extraor- 
dinary apjn-opriations  Avere  demanded  in  1880  to 
put  them  in  proper  condition.  If  these  had 
been  spread  OAmr  several  years  the  last  tax  rate 
Avoid d not  haA^e  lieen  so  large. 

Candor  com])els  me  to  admit  that  there  has  been 
spent  more  than  was  necessary  on  the  iieAV  Latin 


14 


MAYOR’S  ADDRESS. 


and  High  School-house.  This  building,  with  the 
laud  and  furniture,  according  to  the  report  of  the 
Superintendent  of  Public  Buildings,  cost  the  city 
about  $748,000.  These  schools  did  not  require 
such  an  expenditure,  and  when  it  is  charged  that 
we  have  been  extravagant  in  respect  to  this 
structure  the  charge  cannot  be  defended.  I may 
observe,  however,  that  only  a small  part  of  this 
extravagance  was  put  into  the  tax  levy  of  last 
year.  I do  not  mean  to  assert  that  the  cost  of 
the  building  was  excessive,  for  our  accomplished 
architect  made  such  favorable  contracts  for  the 
work  that  it  cost  us  thirty  per  cent,  less  than 
it  would  at  this  time.  My  objection  is  to  the 
size  and  appointments  of  the  building.  They  seem 
too  extensive  for  the  wants  of  these  two  schools. 

I may  also  observe  that,  notwithstanding  the 
general  charge  of  extravagance  urged  against 
the  government  of  last  year^  which  tilled  the 
news]:>a])ers  hostile  to  the  late  administration,  no 
specific  items  of  improper  expenditure  have  been 
])ointed  out,  although  the  request  for  particulars 
was  often  made.  It  would  have  been  just  to 
those  who  have  been  censured,  and  useful  to  you 
Avlio  are  soon  to  make  the  api)ropriations  of 
the  ])resent  year,  if  such  specification  had  been 
made.  When  we  know  what  expenditures  our 


MAYOR’S  ADDRESS. 


15 


tax-payers  object  to,  we  can  give  them  more 
critical  consideration  than  we  otherwise  might.  In 
the  absence  of  snch  information,  and  in  view  of 
the  endorsement  by  reelection  of  three-fourths  of 
the  Board  of  Aldermen  who  voted  the  alleged 
extravagance,  and  of  more  than  one-half  of  the 
other  branch  of  the  Conncil  of  1880,  we  may 
be  permitted  some  doubts  whether  the  intelligent 
portion  of  onr  citizens  who  understand  the  facts, 
really  believe  that  the  city  government  of  last 
year  was  unfaithful  to  its  trusts  touching  the 
expenditure  of  the  public  moneys. 

These  doubts  augment  when  we  find  that  onr 
taxes  are  not  so  great  as  those  of  many  other 
large  American  cities.  They  are  not  so  high  as 
those  of  'New  York,  Philadelphia,  Baltimore,  and 
Chicago.  In  those  cities  there  are  numerous  spe- 
cific assessments,  which  are  here  put  into  the 
general  tax  levy,  snch  as  those  for  the  care  of 
streets,  sidewalks,  etc.,  etc.  In  the  Auditor’s 
Report  of  1879-1880,  page  304,  there  is  set 
forth  a remarkable  case,  illustrating  this  state- 
ment, where  a piece  of  land,  the  average  valu- 
ation of  which  for  eleven  years  was  $24,700, 
was  assessed  for  annual  taxes  at  an  average  rate 
of  $26.70  per  $1,000,  and  for  special  assessments 
at  $52  per  $1,000,  making  an  average  yearly 


16 


MAYOR’S  ADDRESS. 


assessment  of  $78.70  per  $1,000;  the  total  of  all 
these  taxes  for  the  whole  term  being  $21,285 ! 

Onr  citizens  have  a just  pride  in  Boston.  They 
want  all  the  mimicipal  benefits  and  enjoyments  which 
are  to  be  had.  They  are  not  satisfied  if  the  streets 
are  not  kept  in  the  best  order,  and  well  cleaned 
and  lighted  ; they  want  the  Fire  Department  to  be 
as  efficient  as  possible  ; they  expect  the  Police  De- 
partment to  be  so  maintained  as  to  accomplish  all  the 
objects  of  its  organization;  they  wish  onr  benevo- 
lent and  reformatory  institutions  to  be  benefited  by 
every  improvement  which  the  protection  of  society 
requires,  and  the  philanthropy  of  the  age  demands; 
they  want  our  schools  to  retain  their  preeminence 
among  those  of  other  cities,  so  that  the  reputation 
of  our  citizens  for  moral  and  intellectual  culture 
shall  be  preserved;  they  want  the  health  of  the  city 
secured;  they  want  our  public  grounds  made  pleas- 
ant and  attractive  by  proper  care  and  attention ; 
they  wish  all  our  civic  institutions  to  be  kept  in  the 
best  condition,  and  are  disposed  to  regard  many 
tilings,  which  elsewhere  are  considered  municipal 
luxuries,  as  municipal  necessaries, — and  yet  they  are 
unwilling  to  pay  the  cost  of  them.  Let  me  cite  a 
i-emarkahle  case  in  point.  In  1879  the  government, 
in  its  desire  to  economize  the  expense  of  lighting  our 
streets,  changed  the  burners  in  the  lamps,  so  that 
they  consumed  three  cubic  feet  per  hour,  instead 


MAYOR’S  ADDRESS. 


17 


of  four,  as  jDrevioiisly.  By  this  change  we  saved 
during  the  year  $40,000;  the  next  year  we  should 
have  saved  very  much  more.  The  streets  were  not, 
of  course,  as  well  lighted  as  they  were  before  we 
made  the  change;  but  they  were  as  well  lighted  as 
those  of  most  cities,  and,  in  the  judgment  of  many 
whose  opinions  were  entitled  to  respect,  sufficiently 
well  lighted.  So  much  complaint,  however,  was 
made  of  the  insufficiency  of  light,  and  the  belief 
became  so  general  that  the  citizens  were  wronged, 
and  the  public  safety  endangered,  that  we  were 
forced  to  abandon  the  economy  and  indulge  the 
accustomed  expense. 

As  I have  observed,  it  is  certainly  our  duty  to 
exercise  — whether  the  times  are  prosperous  or  not 
— a careful  economy  in  the  disbursement  of  the 
public  moneys.  We  shonld  avoid  every  expenditure 
which  the  health,  convenience,  and  safety  of  the 
people  do  not  clearly  require,  and  I trust  that  the 
committees  in  charge  of  the  several  departments 
will  not  ask  of  you  more  than  is  necessary  for  their 
successful  management.  If  they  do,  you  should 
refuse  them.  It  has  hitherto  been  so  common  for 
them  to  ask  larger  amounts  than  the  Council  is 
willing  to  grant,  that  the  Committee  on  Ap- 
propriations usually  make  great  reductions  from 
the  estimates.  Such  reductions  often  approximate 
$1,000,000,  and  it  would  seem  that  sometimes  the 


18 


MAYOR’S  ADDRESS. 


applicants  ask  for  more  than  is  needed,  in  the 
expectation  that  by  so  doing  they  will  get  more 
than  they  otherwise  would,  after  the  reduction  has 
been  made.  It  is  to  be  hoped  that  this  custom  will 
be  abandoned. 

Where  there  are  many  items  of  expense,  small 
extravagances  in  each  make  a large  aggregate,  and 
there  is,  therefore,  greater  reason  for  a watchful 
supervision  of  the  expenditures  of  a large  city  than 
of  those  of  a small  one.  Boston  has  not  only  a large 
population,  — now  nearly  400,000,  — hut  in  conse- 
quence of  the  various  annexations,  a large  territory, 
containing  an  ai^ea  of  nearly  thirty-seven  square 
miles,  and  more  than  346  miles  of  accepted  streets, 
to  be  kept  not  only  in  safe  condition,  but  according 
to  the  Boston  standard  of  convenience  and  comfort. 
To  keep  these  streets  in  such  condition,  and  light 
them,  and  maintain  the  schools,  the  Police,  the  Fire 
Department,  and  pay  the  State  and  county  taxes,  and 
the  interest  due  on  funded  debt,  and  the  taxes  re- 
quired for  the  sinking-fund,  has  alone  required, 
heretofore,  between  six  and  seven  millions  of  dollars, 
and,  when  we  consider  the  great  number  of  other 
municipal  expenditures  that  must  be  made,  we  realize 
tlie  necessity  of  curtailing  the  expenses  of  every 
department  as  much  as  possible. 

But,  while  we  are  exercising  all  proper  economy, 
we  are  not  to  forget  the  true  interests  of  the  city. 


MAYOR’S  ADDRESS. 


19 


Those  citizens  who  most  complained  of  municipal 
extravagance  supported  a candidate  who  was  pledged 
to  ” relieve  labor  and  business  of  the  present  un- 
necessary taxation,  without  disregarding  the  public 
improvements  demanded  by  our  enlarged  boundaries 
and  rapidly  developing  commerce.”  It  would  seem, 
therefore,  that  you  are  expected  to  consider  the 
propriety  of  undertaking  some  of  these  ” improve- 
ments.” Amongst  them  will  probably  be  the  new 
Charlestown  bridge,  the  additional  landing  for  East 
Boston  ferries,  and  the  South  Boston  and  West 
Boxbury  parks.  These  are  very  important  matters, 
and  will  claim  your  careful  attention,  as  the  future 
welfare  and  prosperity  of  the  city  may  be  greatly 
affected  by  your  action  therein.  I do  not  believe 
that  your  constituents  would  object  to  any  judicious 
expenditures  for  such  ” public  improvements,”  as 
their  cost  would  be  returned  with  interest  in  the 
increased  taxes,  which  the  wealth  resulting  therefrom 
would  be  sure  to  yield. 

In  the  front  of  City  Hall  there  are  two  statues, 
— one  of  Benjamin  Franklin,  the  representative  of 
utility,  frugality,  and  common- sense  ; the  other  of 
Josiah  Quincy,  the  exponent  of  progress,  public 
spirit,  and  moral  courage.  If  these  great  exemplars 
shall  inspire  our  deliberations  and  guide  our  actions, 
we  cannot  fail  in  our  official  duty. 


20 


MAYOR’S  ADDRESS. 


CITY  DEBT. 


The  gross  funded  debt  on  Dec.  31,  1880,  exclu- 


sive of  the  Water  Debt,  was 
The  Cochituate  Water  Debt 
The  Mystic  Water  Debt 


. $28,319,476  62 
. 11,631,273  98 
. 1,153,000  00 

. $41,103,750  60 


Sinking-Funds  for  its  payment 
Old  debt  .... 
Consolidated  street  improvement 
Burnt  District 
Twent3^-year 

Ten-}"ear  .... 
Public  park 
Cochituate  Water 
Mystic  Water 

Money's  for  reduction  of  debt 

Total  Sinking-Funds  . 

Other  available  means  : bonds  and 
mortgages  from  sales  of  public 
lands  and  street-improvement 
bonds,  the  proceeds  of  which 
are  payable  to  the  Sinking- 
Funds  . . . . . 


$4,891,531  01 
1,316,186  25 
1,752,423  31 
3,306,497  82 
396,305  74 
198,839  95 
1,748,974  07 
326,364  41 
1,279  51 

13,938,402  07 


506,892  12 

14,445,294  19 

$26,658,456  41 


If  we  deduct  the  Water  Debts,  less  the  Water 

Sinking-Funds  ......  10,708,935  50 

The  net  debt,  exclusive  of  the  Water  Debt,  is  . $15,949,520  91 
Debt  paid  during  the  3’ear  1880  ....  $4,581,831  47 
Average  rate  of  interest  paid  during  the  last  ten 


years 


$5,683 


MAYOR’S  ADDRESS. 


21 


Authorized  loans  not  negotiated  for  Improved 

Sewerage  .......  $1,020,000  00 

Margin  of  debt  which  can  be  increased  by  the 
city  for  purposes  other  than  Water  Works, 

Dec.  31,  1880  $1,707,461  00 

I append  hereto  a memorandum  showing  the 

amount  of  the  debt  falling  due  each  year;  also  the 

debts  redeemable  by  each  sinking-fund.  Also  a 

memorandum  of  the  debt  paid  during  1880. 

• 

The  Council  are  aware  that  an  act  of  the  last 

Legislature  required  the  last  Board  of  Aldermen, 
acting  as  County  Commissioners,  to  select  a site 
for  a new  Court-House,  before  the  1st  of  December, 
1880,  and  if  they  failed  to  do  so  the  Supreme 
Judicial  Court  were  empowered  to  appoint  com- 
missioners to  make  the  selection.  The  Aldermen, 
in  compliance  with  this  direction,  selected  the  lot 
belonging  to  the  city,  known  as  the  ” Beservoir  lot.” 
This  location  seems  to  be  generally  satisfactory, 
although  many  citizens  preferred  other  sites.  I 
trust  that  this  vexatious  question  is  at  last  settled. 
It  has  been  before  the  City  Government  many 
years,  and  a decent  regard  for  the  constant  and 
earnest  request  of  the  bench  and  bar,  for  better 
Court-House  accommodations,  will  not  permit 
further  delay  in  the  erection  of  a suitable  building. 


MAYOR’S  ADDRESS. 


It  is  for  you  to  take  such  action  in  the  premises 
as  may  seem  proper. 

W ATER  DEPARTMEN^T. 

Net  cost  of  the  Cochituate  Water  Works  to  Jan- 
uary 1,  1881 $16,648,692  66 

Amount  to  that  date  of  the  Cochituate  water 


debt $11,631,273  98 

Gross  income  for  1880  .....  $1,132,523  85 


Current  expenses 

$184,734  39 

Interest  on  loans 

86,893  63 

Extension  of  works  . 

638,664  75 

910,292  77 

Net  income  for  1880  . 

. 

$222,231  08 

Mystic  Water 

Works. 

Cost  of  construction  of  works  Januaiy  1,  1881, 

$1,619,878  36 

Mystic  water  debt 

1,153,000  00 

Gross  income  for  1880 

. 

269,481  77 

Current  expenses 

$102,433  89 

Extension  of  works  . 

5,081  92 

Interest  on  loans 

64,750  00 

Chelsea,  Somerville,  and  Everett 

contract  .... 

26,454  07 

198,719  88 

Net  income  for  1880  . 

$70,762  89 

It  will  be  seen  by  the  above  account  that  the  net 

water  income  of  the  Cochituate  Water 

AVorks,  for  1880,  was 

$222,231  08 

That  of  the  Mystic  works 

70,762  89 

Net  income  of  both  works 

$292,993  97 

MAYOirS  ADDRESS. 


23 


The  Cochituate  and  Sudbury  works  are  in  good 
condition,  but  I regret  to  say  that  the  demand  for 
water  during  the  year  has  been  greater  than  the 
supply;  for  the  season  has  been  nnnsnally  dry,  and 
Lake  Cochituate  lower  than  at  any  other  time  since^ 
1874.  Preparations  for  pumping  the  conduit  have 
been  made  in  case  it  should  be  found  necessary  to 
do  so. 

In  view  of  the  possible  recurrence  of  another 
season  ecpially  dry,  the  Board  have  recommended 
the  building  of  an  additional  storage-basin  on  the 
Sudbury  system.  It  is  to  be  remembered  that  this 
system  was  intended,  when  completed,  to  include 
at  least  seven  storage-reservoirs,  of  which  only  three 
have  been  built.  The  others  were  to  be  built  as 
they  were  wanted.  The  consumption  of  water  has 
increased  from  15,063,000  gallons  in  1872,  when  the 
works  were  designed,  to  26,000,000  in  1880.  This 
consumption  increases;  hence  the  necessity  for  the 
immediate  increase  of  storage  facilities,  by  building 
at  least  one  additional  basin.  The  cost  of  the  works 
having  been  much  less  than  the  original  estimates, 
a portion  of  the  unexpended  appropriation  can  be 
applied  to  the  construction  of  this  additional  basin. 

The  quality  of  the  water  has  been  as  good  as 
could  be  expected  from  newly  constructed  works. 
The  increased  demand  for  high-service  water 


24 


MAYOR’S  ADDRESS. 


requires  immediate  relief  of  these  heavily  taxed 
works  by  the  construction  of  new  ones  at  Chest- 
nut Hill.  This  matter  was  presented  to  the  last 
City  Council. 

During  the  year  a new  line  of  48-inch  pipes 
has  been  laid  from  the  Chestnut-Hill  reservoir 
through  Beacon  street  to  the  city  proper,  at  a cost 
of  $252,000.  This  gives  an  increased  pressure  of 
about  ten  feet  in  the  low-service  system. 

A reduction  of  33^  per  cent,  has  been  made  in 
the  charge  to  the  Fire  Department  for  the  use  of 
their  fire  hydrants.  This  reduction  amounts  to 
about  $40,000.  The  rates  of  low-cost  houses,  occu- 
pied by  more  than  one  family,  have  been  reduced. 
It  would  seem  that,  as  the  net  water  income  is 
now  so  large,  further  reductions  might  be  made 
to  water-consumers,  and  I ask  the  attention  of 
the  Council  to  the  subject. 

Nearly  all  the  claims  for  land  damages,  result- 
ing from  the  building  of  the  additional  supply 
works,  have  been  settled. 

Some  legislation  should  be  obtained  to  compel 
the  town  of  Framingham  to  dispose  of  its  sewage 
so  as  not  to  injure  the  water  of  Farm  Pond;  and, 
as  this  town  has  apjilied  to  the  Legislature  for 
leave  to  supply  itself  from  this  pond,  any  grant 


MAYOR’S  ADDRESS. 


25 


of  such  right  should  be  on  the  condition  that  the 
water  is  protected  from  such  sewage. 

The  Mystic  Water  Works  are  in  good  condition. 
Mystic  Lake  has  also  been  nnnsnally  low  during 
the  last  season,  and  the  Board  were  forced  to 
erect  temporary  pumping-works  at  the  lake  to 
keep  up  the  supply  in  the  conduit.  The  water 
is  now  rising  at  the  rate  of  one  inch  per  day, 
and  it  is  probable  that  the  pumps  will  soon  be 
dispensed  with. 

Upon  the  completion  of  the  new  high-service 
works  at  East  Boston  the  supply  to  this  district 
was  discontinued.  This  change  will  etfect  an  an- 
nual saving  to  the  Cochituate  works  of  about 
$40,000. 

Mystic  water  is  greatly  improved  in  character, 
and  during  the  year  has  been  good. 

The  Board  express  the  opinion  that  the  capacity 
of  the  Mystic  works  should  he  increased  by  the 
construction  of  an  additional  storage-basin,  or  by 
some  other  method,  and  they  are  inclined  to  be- 
lieve that  this  increase  of  capacity  may  become 
ere  long  a necessity.  As  the  expense  of  these 
annual  additions  to  our  water  works  increases 
greatly  our  debt,  it  is  to  be  regretted  that  our 
citizens  will  not  exercise  more  economy  in  the  use 
of  water. 


26 


MAYOR’S  ADDRESS. 


PUBLIC  PARKS. 

Contracts  for  filling  the  roadway  around  the  Back- 
Bay  park  were  made  with  the  Boston  & Albany 
Bailroad  Company  during  1880,  under  which  all  the 
work  except  about  500  feet  near  the  railroad  bridge 
has  been  completed.  The  road  will  be  completed 
early  in  the  year.  The  Health  Department  supplied 
12,376  loads  of  ash  filling,  and  a small  amount  of 
filling  was  done  by  teams.  The  amount  paid  for 
filling  and  contingent  expenses  during  the  year  was 
$93,702.30. 

A contract  has  been  made  for  the  building  of  the 
foundations  and  abutments  of  the  Boylston-street 
bridge  for  $38,617.  The  work  has  been  commenced, 
and  Avill  be  ready  for  the  superstructure  by  the  end 
of  the  financial  year.  The  Beacon-street  entrance 
to  the  park  lias  been  widened  to  400  feet  by  the 
conveyance  to  the  city,  Avithout  cost,  of  60,000  feet  of 
land  for  the  purpose.  The  additional  width  Avill 
greatly  improve  the  jirincipal  approach  to  the  park. 

The  important  woi*k  of  carrying  the  waters  of 
Stony  Brook  through  the  park  by  a covered  chan- 
nel has  made  considerable  progress;  17,000  linear 
feet  of  it  are  comjfieted.  The  excavation  for  the  gate- 
chamber  has  been  done,  and  a part  of  the  pile  foun- 
dation driven.  The  expenditures  on  this  work,  to 


MAYOR’S  ADDRESS. 


27 


Dec.  31,  were  $33,199.42.  The  estimated  cost  of  the 
whole  work  was  $110,000,  and  the  appropriation  was 
for  this  amonnt.  It  is  not  probalde  that  the  entire 
cost  will  exceed  the  estimate. 

I deem  it  my  duty  to  renew  my  commendation  of 
the  plan  of  the  Park  Commissioners  for  the  creation 
of  public  ]3arks  at  West  Poxbnry  and  City  Point,  if 
the  required  lands  can  he  obtained  at  reasonable 
prices.  The  arginnents,  sanitary  and  aesthetic,  in 
favor  of  these  measures  have  been  so  often  stated  in 
the  newspapers,  in  public  addresses,  and  other  ways, 
that  it  is  nnnecessary  for  me  to  repeat  them.  Few 
will  deny  the  general  proposition  that  parks  greatly 
improve  the  health,  comfort,  and  ornament  of  a city, 
and  indirectly  enhance  its  material  prosperity  and 
progress.  Few  will  deny  that  the  chief,  if  not  the 
only,  objection  to  the  adoption  of  the  beantifnl  park 
system,  recommended  by  onr  able  and  public-spirited 
Park  Commissioners,  has  been  found  in  its  cost.  As 
I observed  in  my  last  inaugural  remarks,  to  which  I 
beg  leave  to  refer  your  attention,  a large  number  of 
our  wealthy  tax-payers  in  their  memorial  to  the  City 
Council  represented  that  the  time  had  come  for  the 
adoption  of  some  part  of  this  system,  and  requested 
the  purchase  of  the  lands  embraced  in  the  proposed 
West  Poxbury  park.  The  subject  was  referred  to 
its  appropriate  committee,  and  was  fully  considered 


28 


MAYOR’S  ADDRESS. 


by  your  predecessors.  It  is  not  to  be  denied  that 
considerable  opposition  was  made  to  the  measure, 
both  within  and  without  City  Hall;  but,  although  its 
importance  was  generally  recognized,  the  policy  of 
immediate  action  was  so  seriously  questioned  by  its 
friends  as  well  as  its  opponents,  that  it  was  thought 
best  by  all  parties  to  refer  the  matter  to  this  Council. 
It  will  be  before  you  for  such  action  as  may  seem  to 
you  best. 

My  own  judgment  in  the  premises  may  be  of 
no  more  value  than  yours,  but  I should  not  con- 
sider my  duty  fully  performed  if  I did  not  say 
that  if  you  think  we  can  now  afford  to  incur  the 
cost  of  a municipal  acquisition  which  will  contribute 
so  much  to  the  health  and  enjoyment  of  our  citizens, 
and  add  so  largely  to  the  ornament  of  the  city,  we 
ought  to  avail  ourselves  of  the  opportunity  to  pos- 
sess it.  It  has  been  alleged  by  the  opponents  of  this 
park,  that,  concealed  beneath  the  project,  will  be 
found  a scheme  of  the  owners  of  the  lands  embraced 
within  the  park  limits,  to  sell  these  lands  at  prices 
fai-  l)eyond  their  value.  If  there  is  ground  for  this 
suspicion  the  danger  of  fraud  could  be  averted  by 
taking  the  lands  under  the  powers  in  the  Park  Act, 
and  submitting  their  value  to  the  judgment  of  a jury. 
I think,  however,  it  would  be  best  to  leave  the  ques- 
tion of  price  to  the  direction  of  the  sagacious  and 


M A Y OK’S  A D DRESS. 


29 


intelligent  Board  of  Park  Commissioners.  These 
gentlemen  — although  not  political  officeholders  — 
are  well  known  in  this  community  as  citizens  of  the 
highest  integrity  and  capacity,  and  are  entrusted 
with  the  management  of  most  important  business 
affairs.  N^o  one  need  fear  that  any  moneys  placed  in 
their  hands  for  park  purposes  would  be  extrava- 
gantly or  unwisely  expended.  I suggested  to  the 
last  City  Council,  that  if  the  park  was  to  be  made, 
the  sooner  the  lands  were  purchased  the  cheaper 
they  could  be  got.  Experience  has  justified  this 
prediction,  for  with  the  revival  of  business  real  estate 
in  many  places  has  appreciated,  and  West  Poxbury 
lands  are  held  higher  to-day  than  they  were  a year 
ago.  A year  hence  they  will,  beyond  doubt,  appre- 
ciate still  more. 

It  is  to  be  regretted  that  the  recommendation  of 
the  Park  Commissioners,  for  the  purchase  of  the 
lands  at  South  Boston  Point,  for  the  use  of  the  large 
part  of  our  population  in  that  section  of  the  city,  as 
a common,  and  a place  for  resort  for  fresh  air  in  the 
hot  months,  which  seemed  to  meet  not  only  the 
approbation  of  the  last  Council,  but  the  general  pub- 
lic, was  not  adopted  and  the  measure  consummated. 
The  cost  of  the  improvement  is  not  large  in  compar- 
ison with  the  benefits  to  be  derived,  and  I commend 
the  matter  to  your  early  and  favorable  consideration. 


30 


MAYOR’S  ADDRESS. 


In  compliance  with  the  direction  of  the  last 
City  Government,  I petitioned  the  Legislature 
for  a grant  of  a strip  of  flats  on  Charles  river 
for  the  emhankment  park  recommended  by  the 
commissioners  ; but  the  committee  to  whom  the 
subject  was  referred,  although  in  favor  of  the 
measure  and  disposed  to  advise  the  gift,  deemed 
it  best,  as  the  Harbor  Commissioners  and  riparian 
land-owners  had  not  agreed  on  certain  essential 
preliminaries,  to  refer  the  matter  to  the  suc- 
ceeding Legislature.  They  therefore  reported 
accordingly.  As  their  report  is  favorable  to  the 
petition  I would  advise  its  renewal. 

If  the  flats  are  granted  they  can  be  used  as 
a dinnping-gronnd  for  onr  street-sweepings  and 
ashes,  and  thus  be  gradually  tilled  without  the 
necessity,  for  a long  time,  of  an  appropriation 
for  their  improvement.  When  we  commence  the 
building  of  the  Court-House  the  stone  in  the 
reservoir  will  be  found  an  embarrassment,  and  it 
could  he  conveniently  used  in  the  construction 
of  a sea-wall.  It  will  he  desirable,  therefore,  to 
get  the  ac'tion  of  the  State  on  onr  application 
as  soon  as  ])ossihle.  This  strip  of  flats  is  con- 
sidei-ed  by  those  whose  judgment  is  entitled  to 
weight  to  be  of  little  value  to  any  party  but 
the  city.  The  city  and  the  citizens,  by  their 


M A Y O R ’ S ADDRESS. 


31 


enterprise  and  energy,  have  made  the  lands  of 
the  State  very  valuable,  and  brought  millions  into 
its  treasury.  Boston  pays  more  than  a third  of 
the  State  taxes.  During  a considerable  part  of 
the  year  the  General  Court  enjoys  the  hospitality 
of  the  city.  The  prosperity  of  Boston  is  largely 
the  prosperity  of  Massachusetts.  The  capital  of 
our  citizens  and  their  business  connections  have 
largely  contributed  to  the  prosperity  of  the  other 
parts  of  the  Commonwealth.  Whatever,  therefore, 
affects  the  interests  of  Boston  should  be  tenderly 
guarded  by  the  State  government,  and  the  ancient 
and  unnatural  opposition  to  the  metropolis  of 
Massachusetts  from  Cranberry  Centre,  and  other 
bucolic  districts,  remitted  to  the  limbo  of  things 
which  have  been  and  are  not.  I do  not  doubt  that 
the  flats  referred  to  will  be  ceded  to  us,  so  that  we 
may  initiate  an  improvement  which  will  make  Boston 
the  most  attractive  city  on  this  continent. 

PUBLIC  INSTITUTIONS. 

The  institutions  under  the  control  of  the  Board 
of  Directors  of  Public  Institutions,  consisting  of 
the  Houses  of  Correction,  Industry,  and  Pefor- 
mation,  the  Lunatic  Hospital,  and  the  Almshouses, 
are  in  good  condition,  and  show  that,  under  the 


32 


MAYOR’S  ADDRESS. 


watchful  supervision  of  the  Board  having  charge 
of  them,  they  are  successfully  accomplishing  the 
objects  of  their  organization. 

The  year  has  been  one  of  unusual  prosperity  and 
exemption  from  epidemic  disease.  There  has  been 
no  material  increase  in  the  expenditures  of  this 
department,  while  the  income,  especially  that  of 
the  House  of  Correction,  has  been  considerably 
increased. 

In  this  institution  there  are  418  inmates,  a decrease 
of  74  during  the  year.  Since  April  30,  1880,  its 
income,  compared  with  the  same  period  in  1879, 
has  increased  $4,200.  ” The  labor  of  the  prisoners 

is  in  good  demand  at  remunerative  prices,  and  the 
continued  business  prosperity  ensures  the  steady  em- 
ployment of  all  the  prisoners.’’  A new  building  for 
laundry  and  other  purposes  has  been  recently  erected. 

In  the  Deer  Island  institutions  there  are  1,291 
inmates.  A year  ago  there  wei’e  1,399.  The  ditfer- 
ence  in  these  numbei’s  was  caused  by  the  discharge 
of  about  100  pu])ils  of  the  Truant  School,  who,  under 
the  recent  decision  of  the  Supreme  Court,  were 
unlawfully  committed.  It  is  not  expected  that  any 
material  additions  to  the  accommodations  of  the 
island  will  be  required  during  the  year. 

There  are  104  patients  at  the  Lunatic  Hospital; 
the  same  number  as  was  last  year.  Most  of 


]\I  A Y O R ’ S ADDRESS. 


33 


the  insane  l^elonging  to  Boston  are  sent  to  the  State 
hospitals  at  Worcester,  l^orthainpton,  Tannton,  and 
Danvers.  There  are  465  of  these  cases.  Those 
sent  to  Sonth  Boston  are  for  the  most  part  the  aged 
and  infirm,  who  are  too  feeble  for  transj^ortation  to 
distant  places. 

There  are  210  pauper  and  neglected  hoys  at  the 
Marcella-street  Home.  The  new  buildings  at  this 
place  are  nearly  completed.  The  chapel  was  occu- 
pied for  the  first  time  on  Christmas  eve.  When 
the  buildings  are  finished  the  pauper  and  neglected 
girls  will  be  removed  from  Deer  Island.  Further 
appropriation  is  needed  to  complete  them. 

At  the  Austin  Farm  there  are  152  adidt  female 
poor,  — an  increase  of  22  during  the  year.  The 
farm  has  been  well  and  economically  managed. 

There  are  40  inmates  of  the  Almshouse  in  the 
Charlestown  District,  — a decrease  of  43  compared 
with  the  number  one  year  ago,  caused  principally 
by  the  transfer  of  16  males  to  Rainsford  Island  and 
20  females  to  Austin  farm. 

The  Board  adhere  to  the  opinion,  expressed  in 
several  commnnications  to  the  City  Council,  that  it 
would  be  for  the  interest  of  the  city  to  discontinue 
this  institution  and  remove  its  inmates  to  other 
places  in  this  department.  An  additional  appro- 
priation will  be  required  for  this  almshouse. 


34 


MAYOR’S  ADDRESS. 


The  appropriation  for  all  the  institutions  controlled 
by  this  Board  was  $486,700. 

SCHOOLS. 

The  total  number  of  children  in  the  city  of  Boston 
between  the  ages  of  5 and  15,  according  to  the 


school  census  of  May,  1880,  was  . . . 57,703 

Average  number  of  pupils  belonging  to  the  public 

schools  during  the  year  .....  53,340 

Whole  number  of  teachers  . . . . . 1,269 

Number  of  schools  ......  202 


Expenditures  by  the  School  Board. 

Salaries  of  teachers  ......  $1,117,553  01 

Salaries  of  officers,  including  truant  officers  . . 52,280  15 

Incidental  expenses,  including  salaries  of  janitors  . 253,'451  89 

$1,423,285  05 

Expenditures  by  Public  Building  Committee. 

Repairs  and  alterations  .....  $156,355  28 

School-houses  and  lots  . . . . . 199,576  94 

Total  expenditures  for  schools  . . . $1,779,21727 


The  appropriation  of  1880  for  this  department 

was  ........  $1,650,500  00 

For  salaries  of  instructors  and  officers,  and  inci- 
dentals ........  $1,334,000  00 

For  school  buildings  ......  316,500  00 


$1,650,500  00 


MAYOR’S  ADDRESS. 


35 


The  School  Committee  requested,  for  instructors, 
officers  and  incidentals,  $1,443,246,  being  $109,246 
more  than  the  amount  allowed. 

The  government,  in  refusing  to  give  this  depart- 
ment all  that  was  asked,  was  influenced  by  the 
growing  feeling  in  this  community  that  our  schools 
were  costing  too  much.  The  citizens  are  willing 
that  we  should  appropriate  all  that  is  necessary  to 
maintain  the  high  rank  which  the  schools  have 
always  held ; but  they  believe  that  the  School  Com- 
mittee are  spending  more  than  they  should. 

The  accomplished  educator,  Thomas  Cushing, 
Esq.,  for  many  years  the  senior  principal  of  the  well- 
known  Chauncy  Hall  School  of  this  city,  in  his  recent 
admirable  lecture,  read  before  the  American  Institute 
of  Instruction  at  Saratoga,  tells  us  that  in  Boston 
10,058  pupils  are  educated  at  private  schools,  at  a 
cost  of  $366,642.  If  we  add  this  sum  to  that  paid 
by  the  city  for  the  support  of  the  school  department 
during  the  last  year,  we  have  $2,145,859  as  the 
annual  cost  of  educating  our  boys  and  girls.  This 
amount  must  be  regarded  by  every  one  as  excessive. 
It  is  only  justice  to  the  School  Committee  to  say 
that  they  have  tried  to  retrench.  They  appointed  a 
sub-committee  ''  to  examine  every  department  of  the 
school  system  of  this  city,  to  ascertain  what,  if  any, 
change  or  changes  can  be  made  in  the  organization 


36 


MAYOR’S  ADDRESS. 


of  the  public  schools,  the  courses  of  study,  the  fur- 
nishing of  supplies,  etc.,  by  which  the  annual  ex- 
penses may  be  lessened,  or  the  efficiency  of  the 
schools  increased.”  This  sub-committee  gave  the 
subject  a great  deal  of  attention  and  thought,  but 
very  little  in  reducing  expenses  was  accomplished. 
Practically  the  School  Committee  confess  that  they 
cannot  carry  on  their  department  with  less  cost  to 
the  city. 

With  no  disposition  to  question  the  good  faith 
of  the  committee,  I sometimes  think  that  the 
great  powers  given  them  by  the  statute,  to  expend 
all  that  they  deem  proper  for  school  purposes, 
must  mislead  their  judgment  in  respect  to  the 
just  wants  of  the  schools.  I believe  they  would 
take  different  views  of  these  wants  if  they  were 
olffiged,  like  the  committees  in  charge  of  other 
municipal  de])artments,  to  solicit  from  the  Council 
the  means  of  carrying  on  the  schools  in  a peti- 
tioning rather  than  a demanding  spirit.  Nearly 
all  the  departments  ask  for  larger  appropriations 
than  they  need  ; but,  as  their  supervising  commit- 
tees have  no  control  over  the  Treasury,  they  are 
obliged  to  take  what  the  government  (kooses  to 
give  them. 

Scliool  committees  should  be  com])elled  to  limit 
their  (‘X})enditnres  to  the  appropriations  of  the 


M A Y ( ) R ’ S ADDRESS. 


87 


Council.  Xo  one  need  fear  that  the  city  gov- 
ernment will  not  provide  all  that  is  necessary  for 
the  support  of  schools.  It  reflects  at  all  times  the 
public  sentiment  on  this  subject,  and  there  is  no 
stronger  sentiment  than  the  public  interest  in 
education  except  the  religious  sentiment  and  the 
love  of  liberty.  This  sentiment  constantly  grows, 
and  there  is  more  danger  that  it  will  become  so 
intense  as  to  invade  the  rights  of  the  tax-payers 
than  that  it  will  abate  ; there  is  more  danger 
that  we  shall  teach  too  much  than  too  little. 

I advise  a new  ap])lication  to  the  Legislature 
for  an  act  restraining  the  School  Committee  from 
increasing  expenditures  beyoud  the  appropriations 
of  the  government. 

PUBLIC  LIBRARY. 

The  appropriation  of  1880  for  this  department 
was  $115,000.  It  was  for  salaries  of  superintend- 
ent and  assistants,  purchase  of  books,  cost  of  bind- 
ing, fuel,  gas,  furniture,  etc. 

The  whole  number  of  hooks  now  in  the  library 
is  over  386,000.  It  is  the  largest  free  circulating 
library  in  the  world. 

The  circulation  for  the  year  1880  is  about  five 
per  cent,  less  than  that  of  1879,  chiefly  on  ac- 


38 


MAYOR’S  ADDRESS. 


count  of  the  restrictions  of  the  trustees  on  the 
purchase  of  the  lighter  classes  of  books.  The 
State  has  given  the  city  a lot  of  land  on  Dart- 
mouth and  Boylston  streets  for  the  erection  of  a 
building  of  sufficient  capacity  for  the  accommoda- 
tion of  this  library,  and  I trust  that  before  long 
we  shall  be  able  to  have  such  a building.  We 
need  a fire-proof  structure  for  the  protection  of 
the  hooks.  They  are  now  exposed  to  constant 
danger,  and,  as  many  of  them  are  invaluable  and 
could  not  be  replaced,  action  in  this  matter  should 
be  taken  as  soon  as  the  finances  of  the  city  will 
permit. 

POLICE  DEPARTMENT. 

This  department  is  controlled  by  the  Board  of 
Police  Commissioners. 

The  appropriation  of  1880  for  this  department  was  $867,592  00 
Expenditures  from  May  1,  1880,  to  Dec.  31,  1880  . 563,444  03 

Balance  for  expenses  of  the  rest  of  the  financial  year  $304,147  97 
Total  amount  of  expenditures  from  Jan.  1,  1880,  to 


Dec.  31,  1880  $839,432  35 

Number  of  police  allowed  by  law  ....  757 

Number  on  the  force  Dec.  31,  1880  ....  709 

Amusement  licenses  granted  .....  426 

Intelligence-oflice  licenses  .....  81 

Billiard-table  licenses  ......  350 

Bowling-alley  licenses  ......  10 


MAYOR’S  ADDRESS. 


39 


Pawnbroker  licenses 
Second-hand  jiink  licenses 
Second-hand  articles  licenses  . 
Second-hand  clothing  licenses 
Auctioneer’s  licenses 
Liquor  licenses 

Fees  received  . . . . 


70 

362 

241 

75 

132 


2,463 

$266,687 


The  department  is  well  managed,  and  in  good  con- 
dition. I would  renew  the  recommendation  which  I 
made  to  the  last  City  Council  that  the  control  of  the 
City  Prison  and  Harbor  Master  be  given  to  the 
Board  of  Police  Commissioners. 

FIRE  DEPARTME^7T. 

The  appropriation  of  1880  for  this  department  was  . $605,150 

Expenses  during  the  year:  — 

Fire  Department  ........  $447,310 

Fire  alarm  .........  21,800 

Bells  and  clocks  . . . . . . . . 1,100 

Water  and  care  of  h}^drants  . .....  128,940 


The  Board  has  repeatedly  complained  of  the  large 
sums  required  for  the  use  of  water,  and  I drew  the 
attention  of  the  Council  last  year  to  the  matter. 
Since  then  the  Water  Commissioners  have  reduced 


$599,150 


40 


MAYOR’S  ADDRESS. 


their  charges,  by  which  about  $40,000  will  be  annu- 
ally saved  to  this  department. 

The  Back-Bay  territory  is  so  rapidly  filling  up  that 
the  Board  thinks  the  safety  of  that  section  requires 
an  engine  there.  This  would  involve  the  purchase 
of  land  and  the  erection  of  an  engine-house.  I bring 
the  subject  to  your  attention,  confident  that  yon  will 
take  such  action  thereon  as  will  be  found  proper. 

At  the  last  session  of  the  Legislature  an  act  was 
passed  authorizing  the  city  to  pension  disabled  and 
infirm  firemen.  Ao  action  has  been  taken  in  the 
matter,  and  I commend  it  to  your  consideration. 

The  number  of  fire-alarms  during  1880  was  . . 597 

Loss  on  buildings  .....  $341,913 
Loss  on  contents  . . . . . 772,019 


LAMP  DEPARTMENT. 

The  appropriation  of  1880  for  this  dei)artment  was  . $413,000  00 
Amount  expended  to  Dee.  31,  1880  . . . 277,379  47 

Unex})ended  . . . . . . . . $122,620  53 

Tlie  report  of*  the  alile  Superintendent  of  Lamjjs 
gives  full  and  instructive  information  touching  this 
department.  We  have  not  only  a detailed  statement 


$1,113,932 


Insurance  on  buildings 
Insurance  on  contents 


. $2,676,532 

. $2,542,041 


MAYOR’S  ADDRESS. 


41 


of  the  cost  of  the  gas  and  oil,  and  the  lighting  and 
care  of  each  lamp,  and  the  entire  expenses  of  the 
year  in  detail;  but  also  a table  showing  the  compara- 
tive expense  of  lighting  our  street  for  fourteen  years, 
the  number  of  lamps  on  the  15th  day  of  December 
of  each  year,  and  their  annual  increase  during  this 
term.  There  has  been  an  increase  of  lamps  during 
the  year,  in  consequence  of  the  ojDening  of  new 
streets  on  the  Back-Bay  lands,  and  the  requests  of 
citizens  in  the  outlying  districts.  The  superin- 
tendent expects  the  demand  for  additional  lamps 
will  greatly  increase  during  the  present  year  and 
those  to  come,  so  that  we  cannot  expect  to  lessen 
the  expenses  of  this  department.  We  must  find 
consolation  for  this  disappointment  in  the  evidence 
it  gives  of  municipal  growth.  N^early  all  the  wooden 
lamp-posts  have  been  removed,  and  those  of  iron 
substituted.  The  few  that  remain  will  be  changed 
during  the  year. 

In  consequence  of  the  earnest  and  numerous 
petitions  for  increased  light  in  our  streets,  from  all 
parts  of  the  city,  representing  many  of  our  heavy 
tax-payers,  we  have  been  obliged,  as  I have  before 
stated,  to  change  our  three-feet  burners  to  four-feet 
burners.  In  the  previous  year  we  substituted  the 
latter  for  the  former,  and  saved  thereby  $40,000,  as 
I have  already  observed;  but  the  demands  were  so 


42 


MAYOR’S  ADDRESS. 


pressing  that  the  committee  on  the  department  could 
not  ignore  them.  It  is  not  necessary  for  me  to 
observe,  that  if  the  tax-payers  will  have  plenty  of 
light  they  must  pay  for  it.  Our  streets  were  as  well 
lighted  with  three-feet  burners  as  most  cities,  and 
we  should  he  contented  in  this  matter  with  what 
satisfies  others. 

I am  glad  to  inform  you  that  when  the  subject 
of  the  restoration  of  the  four-feet  burners  was 
under  consideration,  the  gas  companies,  to  aid  the 
department  in  satisfying  the  citizens,  and  keep 
down  expenses,  made  large  reductions  in  the  prices 
of  gas. 


In  the  city  proper  the  reduction  was 
In  South  Boston  “ “ 

In  East  Boston  ‘‘  ‘‘ 

In  Eoxbury  “ 

In  Dorchester 

In  Brookline  “ “ 

In  Brighton  “ ‘‘ 

In  West  Roxbury  “ “ 

In  Charlestown  “ “ 


Per  M.  feet. 

from  $1.75  to  $1.50 
“ 2.25  to  2.00 

“ 2.25  to  2.00 

“ 2.25  to  1.87^ 

“ 2.75  to  2.25 

“ 2.50  to  2.25 

“ 2.50  to  2.25 

‘‘  2.75  to  2.25 

“ 2.25  to  1.87^ 


It  may  be  interesting  for  our  citizens  to  know 
the  reductions  which  have  been  made  to  the  city 
in  the  prices  of  gas  during  the  last  five  years : — 


MAYOR’S  ADDRESS. 


43 


1875. 

1880. 

The  city  proper  paid  .... 

$2.08Y 

$1.50 

South  Boston  and  East  Boston 

2.50 

2.00 

Roxbury  and  Charlestown 

2.50 

1.87^ 

Dorchester,  Brighton,  and  Jamaica  Plain, 

2.50 

2.25 

Information  is  often  sought  of  the  cost  of  gas 
for  our  public  buildings  compared  with  that  fur- 
nished to  private  consumers. 

The  Boston  Gas  Company  charges  the  citizens  $2.00 ; the 
city,  $1.90. 

South  Boston  and  Charlestown  Companies  charge  the  citizens 
$2.50 ; the  city,  $2.50,  5 per  cent.  off. 

East  Boston  charges  the  citizens  $2.50 ; the  city,  $2.50. 

Dorchester  charges  the  citizens  $3.25  ; the  city,  $3.00. 

Brookline  in  Brighton  charges  the  citizens  $3.00 ; the  city, 
$2.50. 

Jamaica  Plain  charges  the  citizens  $3.00 ; the  city,  $3.00, 
5 per  cent.  off. 


The  number  of  men  employed  in  the  department  is 

136 

Number  of  lanterns  broken  in  1880 

. 

7,479 

Number  of  lanterns  destroyed  in  1880  . 

. 

79 

Present  number  of  public  lamps 

12,664 

Gas  lamps  ..... 

10,296 

Oil  lamps  ..... 

2,368 

Increase  during  1880  . 

249 

There  are  over  400  miles  of  streets  and  places 
lighted  by  this  department,  covering  more  territory 
than  any  similar  department  in  the  country. 


44 


MAYOR’S  ADDRESS. 


The  superintendent  says : ” The  great  cost  of  the 
department  is  to  he  traced  to  annexation,  as  one- 
half  of  all  the  street  lamps  are  located  within  the 
annexed  territory,  and  more  than  one-half  of  the 
appropriation  is  expended  outside  the  old  city 
limits.” 

Each  of  the  10,296  gas  lamps  burned  3,828  hours 
during  the  year,  and  each  burned  4 feet  of  gas  per 
hour.  Total  consumption  of  each  lamp  for  the  year. 


15,312  feet;  total  consumption  of  all  the  lamps  for 
year,  157,652,352  cubic  feet. 

Average  cost  per  1,000  feet  .....  |1  80 

Cost  of  gas  for  each  lamp  . . . . . $27  69 

Cost  of  gas  for  all  the  lamps  .....  $285,195  55 

Cost  of  lighting  and  care  of  each  lamp  . . . $6  36 

Cost  of  lighting  and  care  and  gas  for  each  lamp  . $34  06 

Total  cost  of  lighting  and  care  of  the  lamps  . . $65,568  59 

Total  cost  of  lighting  and  care  and  gas  . . . $350,764  18 

Cost  of  oil,  lighting,  and  care  of  2,366  oil  lamps 
Oil  consumed  by  each  lamp  per  annum,  gallons  . 32 

Total  consumption  by  all  lamps,  gallons  . . . 75,712 

Cost  of  oil  per  gallon  . . . . . . .11^ 

Total  cost  of  oil  . . . . . . . $8,422  96 

Cost  of  oil  for  each  lamp  per  annum  ...  $3  56 

Cost  of  lighting  and  care  of  each  lamp  per  annum  . $11  40 

Total  cost  of  lighting,  care,  and  oil  for  each  lamp 

per  annum  ........  $14  96 

Total  cost  of  lighting  and  care  of  all  lamps  per 

annum  ........  $26,972  40 


MAYOR’S  ADDRESS. 


45 


Total  cost  of  lighting,  care,  and  oil  of  all  lamps  per 

annum  ........  $35,395  36 

Total  hours  of  burning  of  each  lamp  . . . 3,828 

Total  cost  of  the  department  for  the  }^ear  . . $889,351  16 

PAVmG  DEPARTME^^T. 

The  appropriation  of  1880  for  this  department  was 
$950,000;  that  of  the  previous  year,  $650,000. 

As  it  has  been  complained  that  the  expenditures 
have  been  excessive,  I append  hereto  a detailed 
statement  of  the  work  prepared  by  Mr.  Charles  Har- 
ris, the  Superintendent  of  Streets.  As  I have  before 
observed,  the  estimated  cost  of  the  street  repairs, 
etc.,  which  the  citizens  have  asked  of  the  department 
during  the  last  year,  exceed  two  and  a half  millions 
of  dollars.  The  Committee  on  Paving,  who  super- 
vise this  department,  after  a careful  consideration  of 
all  the  petitions  and  the  work  which  should  be  done, 
advised  an  appropriation  of  $1,276,000.  The  City 
Council  reluctantly  voted  $950,000.  If  you  are  con- 
vinced that  this  money  has  been  economically  spent, 
yon  must  believe  that  the  amount  was  not  excessive 
when  you  consider  the  quantity  and  quality  of  work 
done.  The  long  experience  and  fidelity  of  the  able 
Superintendent  of  Streets  must  assure  you  and  the 
citizens  that  no  extravagance  in  prices  for  work  and 
materials  has  occurred,  and  it  follows,  therefore,  that 


46 


MAYOR’S  ADDRESS. 


all  the  money  appropriated  to  this  department  was 
not  only  well,  hut  judiciously  expended. 

As  I have  befoj’e  remarked,  the  explanation  of  the 
great  cost  of  keeping  our  346  miles  of  accepted 
streets  in  repair  is  found  in  the  demand  of  our  citi- 
zens that  they  shall  be  kept  in  the  best  repair.  They 
will  not  be  contented  with  what  satisfies  other  cities. 
The  fine  condition  of  our  streets  is  often  commented 
by  strangers  who  visit  Boston.  If  the  tax-payers  do 
not  desire  us  to  spend  more  in  this  department  than 
ISTew  York,  Philadelphia,  and  Baltimore  spend  on 
their  streets,  they  must  be  satisfied  with  what  satis- 
fies these  cities. 

assessors’  departme^^t. 

The  real  and  personal  estate  liable  to  taxation  in 
this  city  was  assessed  in  1879  at  $613,322,691.  The 
assessors  then  ex]Dressed  the  opinion  that,  in  view  of 
the  revival  in  business,  there  would  probably  be  no 
further  decline  in  values.  This  prediction  was 
subsequently  verified,  for  the  valuation  of  1880 
reached  $639,462,495. 

A gain  in  real  estate  of  .....  . $8,593,100 

A gain  in  personal  estate  of  ....  . 17,546,700 

Total  gain  .......  $26,139,800 

Complaint  has  been  made  that  this  valuation  was 


MAYOR’S  ADDRESS. 


47 


excessive,  but  it  seems  to  be  confined  to  the  valua- 
tion of  real  estate ; for,  although  the  gain  in  personal 
was  more  than  twice  that  in  real  estate,  the  accuracy 
of  the  valuation  of  the  former  does  not  seem  to  be 
questioned. 

I think,  however,  with  the  assessors,  that  the  sales 
of  many  estates  since  the  valuation  have  vindicated 
the  correctness  of  their  judgment.  In  the  business 
parts  of  the  city,  and  in  the  Back-Bay  district, 
property  has  been  sold  at  prices  largely  in  advance 
of  the  tax  valuation,  and  during  the  year  there  has 
been  a growing  feeling,  in  consequence  of  the  cheap- 
ness of  money,  and  the  improvement  in  all  kinds  of 
business,  that  real  estate  at  present  prices  offers  the 
best  investment  that  capital  can  find.  This  convic- 
tion has  become  so  general  that  large  purchases  are 
daily  made.  Further  evidence  of  the  sagacity  and 
good  judgment  of  the  assessors  is  found  in  the  fact 
that  few  abatements  of  their  valuations  have  been 
asked.  There  are  cases  where  sales  of  real  estate 
have  been  made  at  prices  far  beyond  the  tax  val- 
uation. 

I would  renew  the  recommendation  of  my  last 
inaugural,  that  measures  be  taken  for  a change  in 
the  law,  so  that  in  suits  for  taxes  against  those  who 
are  citizens  for  all  purposes  except  paying  their 
part  of  the  costs  of  government,  the  defendants  shall 


48 


MAYOR’S  ADDRESS. 


not  be  permitted  to  change  the  same  to  the  counties 
where  they  claim  to  reside,  that  more  impartial  and 
unprejudiced  verdicts  may  be  secured. 


IMPROVED  SEWERAGE. 

This  work  progresses  with  reasonable  despatch. 
The  engineer  in  charge  reports  that  although 
the  ” construction  has  not  advanced  so  rapidly 
as  was  at  first  anticipated,  substantial  progress 
has  been  made  during  the  past  year.  One  and 
one-half  miles  of  sewers,  including  the  sections 
most  difficult  to  build,  besides  much  other  work, 
have  been  made.”  The  large  main  sewer  crossing 
the  city  from  Huntington  avenue  to  the  sea-coast 
at  Dorchester,  three  and  one-half  miles  in  length, 
is  practically  completed  ; a gap  of  200  feet  only 
remains  to  be  built.  Six  miles  of  branch  inter- 
cepting sewers  are  also  completed.  These  sewers 
are  those  necessary  to  relieve  the  most  notice- 
able nuisances  incident  to  our  present  system, 
and  can  be  connected  with  the  existing  city 
sewers  and  made  available  as  soon  as  the  pumps 
are  in  j)osition  and  ready  for  service.  At  the 
pumping-station,  the  engine-house  foundations, 
filth  hoist,  connecting  sewers,  and  some  other 
structures,  are  also  completed.  During  the  year. 


MAYOR’S  ADDRESS. 


49 


all  the  works  will  be  so  far  aclvancecl  that  they 
can  be  available  to  pump  the  sewage  into  Dor- 
chester Bay,  if  the  act  authorizing  the  construction 
of  the  sewer  will  permit  us  to  do  so.  The 

engineer  thinks  it  will  require  two  years  more 
to  complete  all  the  works.  About  one-third  of 
the  tunnel  under  Dorchester  Bay  has  been  exca- 
vated, and  the  work  steadily  progresses.  'No 
unforeseen  difficulties  in  the  construction  have 
been  encountered,  and  there  is  every  reason  to 
expect  the  successful  accomplishment  of  this  part 
of  the  sewer  scheme. 

The  construction  of  the  reservoir  and  other 
structures  at  Moon  Island  and  Squantum  was 
begun  early  last  summer,  and  has  been  indus- 
triously prosecuted.  All  the  work  has  been  well 
done,  and  it  is  gratifying  to  know  that  it  has 
cost  less  than  it  would  at  the  present  j^rices  for 
labor  and  materials. 

The  engineer  does  not  doubt  that  this  system 
of  sewers  will  ” ultimately  accomplish  all  that  has 
been  claimed  for  it.” 

SEWER  DEPARTMENT. 

The  appropriation  of  1880  for  this  department  was  $150,000 

Of  which  it  has  spent  113,695 


Balance 


. $37,305 


50 


MAYOR’S  ADDRESS. 


It  has  built  27,000  feet  of  sewers,  mostly  of 
small  sizes.  ~No  large  work  has  been  undertaken. 
The  demand  for  the  extension  of  sewers  has 
been  unusually  great  because  of  the  improvement 
in  real  estate  from  increased  building. 

STOXY-BROOK  IMPROVEMENT. 

This  important  work  will  soon  be  completed. 
It  has  cost  to  this  date  $86,188.  About  1,600 
feet  of  brick  channel  under  Pynchon  street,  and 
1,000  feet  of  channel  walled  with  stone,  under 
private  property,  have  been  built.  The  rest  of 
the  work  will  cost  comparatively  little,  it  being 
for  the  most  part  the  lowering  of  the  old  channel. 
This  improvement  cannot  fail  to  accomplish  all  the 
sanitary  results  expected  from  it,  and  it  will  be 
a cause  of  congratulation  when  this  long-standing 
nuisance  has  been  at  last  abated. 

SUPERINTENDENT  OF  HEALTH. 

The  apj:)ropriation  for  this  department  was 
$340,000.  The  unexpended  balance  on  Dec.  31 
was  $91,642.60. 

In  cleaning  185  miles  of  streets  there  were  em- 
ployed 178  men,  28  carts,  9 sweeping-machines, 
and  6 water-carts. 


]\I  A Y 0 R ’ S ADDRESS. 


51 


The  streets  were  swept  and  cleaned  weekly, 
during  nine  months  of  the  year,  and  52,492  loads 
of  sweejDings  were  collected. 

In  winter  the  men  are  employed  in  removing 
snow  and  ice  from  the  sidewalks  of  public  build- 
ings and  squares,  and  in  clearing  crossings.  89 
men  and  41  carts  were  employed  in  removing 
house  offal.  It  is  removed  from  dwelling-houses 
three  times  a week  in  summer  and  twice  a week 
in  winter  ; from  hotels,  markets,  and  restaurants 
daily.  The  number  of  loads  collected  in  the  year 
was  26,000. 

121  men  and  59  carts  were  employed  in  re- 
moving honse-dirt  ; 139,799  loads  were  removed. 

14  wagons  and  43  men  were  employed  in 
cleaning  cesspools,  and  9,232  loads  of  their  con- 
tents have  been  collected  and  carried  away  and 
buried. 

$35,000  were  received  from  the  sales  of  ashes, 
street-dirt,  house-offal,  manure,  etc. 

THE  BOARD  OF  HEALTH. 

The  appropriation  for  the  Board  of  Health  was 

$86,000. 

The  work  of  this  department  during  the  last  year 
has  been  laborious,  but  it  has  been  well  and  faith- 


52 


MAYOR’S  ADDRESS. 


fully  performed.  It  has  greatly  abated  the  Back- 
Bay  flats  nuisance.  It  has  more  than  half  covered 
the  Mill  Pond  and  Rutherford- avenue  flats  with 
clean  gravel,  extended  the  sewers,  and  introduced 
tide-water  so  as  to  relieve  the  nuisance  of  this 
section.  It  has  removed  the  South-Bay  nuisance 
near  Washington  Village,  by  building  a dam  across 
the  channel  and  allowing  the  flats  to  be  covered 
by  the  tide;  it  has  drained,  under  the  Wet  Land 
Act,  many  parcels  of  land  hitherto  covered  with 
stagnant  water;  it  has  abated  during  the  year 
9,100  other  nuisances,  some  of  them  serious  ones; 
it  has  enlarged  and  improved  the  abattoir;  it 
has  greatly  improved  the  seventeen  burial-grounds 
under  its  charge;  it  has  carefully  supervised  the 
licensed  lying-in  hosi3itals;  it  has  vigilantly  watched 
the  baby  farms;  it  has  attended  to  the  sanitary 
condition  of  the  j^i^blic  school-houses;  it  has  man- 
aged the  public  baths ; it  has  inspected  between 
May  and  November,  when  an  unusually  large  num- 
ber of  cases  of  contagious  diseases  were  brought 
here  from  foreign  ports,  365  vessels,  20  of  which 
were  detained  at  quarantine  for  fumigation  and  ob- 
servation; it  has  caused  over  1,500  passengers  on 
infected  ships  to  be  vaccinated,  and  it  has  taken  such 
])recaution  and  exercised  such  skilful  management 
tliat,  although  there  were  many  symptoms  of  yellow 


MAYOR’S  ADDRESS. 


53 


fever  and  small-pox,  no  contagions  disease  has  en- 
tered the  city  during  the  year  from  quarantine.  This 
record  of  faithful  duty  and  nsefnl  labor  claims,  and 
I donht  not  will  receive,  the  gratefnl  appreciation 
of  our  citizens. 

The  control  of  the  public  baths  was  wisely  trans- 
ferred to  this  department  at  the  beginning  of  the 
year. 

The  general  sanitary  condition  of  the  city  has 
improved  during  the  year,  although  the  mortuary 
statistics  show  an  increase  in  the  deaths  of  about 
1,000  over  those  of  the  preceding  year.  Two-thirds 
of  this  increase  has  resulted  from  non-preventable 
diseases.  Prior  to  1877  scarlet  fever  was  the  most 
destructive  contagious  disease  in  our  city.  Since 
then  the  annual  deaths  from  that  cause  have  dimin- 
ished from  538  in  1875,  458  in  1876,  to  35  in  1880. 
Diphtheria  prevails  at  this  time  over  nearly  the 
whole  country.  It  has  largely  increased  here  since 
^7ovemher,  and  now  prevails  to  an  unusual  extent. 
The  Board  advises  ”more  decided  interference  by 
public  authority  with  a disease  so  prevalent  and  so 
fatal.”  I commend  the  suggestion  to  your  consider- 
ation, that  such  action  may  be  had  as  the  safety 
of  the  citizens  requires. 

• We  have  been  almost  wholly  free  of  small-pox 
during  the  year,  although  it  has  existed  in  most 


54 


MAYOR’S  ADDRESS. 


American  cities.  There  have  been  here  but  four 
cases,  only  one  of  which  proved  fatal. 

The  Board  asserts,  and  I believe  the  citizens 
will  generally  endorse  the  assertion,  that  the  work 
of  collecting  the  offal  and  sweeping  the  streets 
is  so  well  done  that  ” Boston  is  the  cleanest  city 
in  the  country.” 

OVERSEERS  OF  THE  POOR. 

The  amount  appropriated  for  this  department 
was  $117,900.  The  Overseers  have  all  the  charge 
of  the  poor  not  given  to  the  Directors  of  Pub- 
lic Institutions.  They  have  the  disbursement  of 
the  income  of  certain  funds,  now  amounting  to 
$517,740,  given  by  benevolent  persons  for  the 
benefit  of  the  poor.  Their  work  shows  that  they 
are  faithfully  executing  their  trusts. 

They  reiDresent  that  the  ” number  of  applicants 
for  relief  during  the  year  is  not  less  than  the 
last,”  and  their  report  sets  forth  various  reasons 
to  explain  why  there  are  so  many  claims  for  aid. 

If,  however,  tlie  number  of  persons  relieved  is 
not  less  than  hitherto,  it  has  not  been  increased, 
and  the  Board  thinks  tluit  as  business  increases, 
and  new  industries  are  introduced,  many  who  are 
now  unal)le  to  get  em])loyment  will  find  occu- 
])ations. 


MAYOR’S  ADDRESS. 


55 


The  Lodge  for  Wayfarers,  in  Hawkins  street,  has 
been  in  operation  for  about  two  years,  with  suc- 
cessful results.  Here  those  who  formerly  sought 
lodging  at  night  at  the  police  stations  are  re- 
ceived, cleaned,  fed,  and  slept  in  a warm  and 
well-ventilated  room  for  the  consideration  of  saw- 
ing and  splitting,  in  the  morning,  a little  wood. 
The  most  deserving  of  the  applicants  do  not 
object  to  pay  in  this  way  for  the  aid  they  re- 
ceive. The  incorrigibly  idle  are  driven  from  the 
city  when  they  find  they  cannot  be  fed  unless 
they  work. 

The  number  of  persons  who  received  aid  from 
the  Overseers  in  1880  was  16,659. 

PUBLIC  BUILDmCS. 

The  appropriation  of  this  department  — which  last 
year  was  $80,000  — is  expended  in  ordinary  repairs 
(exclusive  of  school-houses,  police  stations,  engine- 
houses,  county  buildings,  public  institutions,  and  City 
Hospital),  fuel,  light,  furniture  for  City  Hall,  clean- 
ing the  Hall,  and  salaries  of  Superintendent  of  Public 
Buildings,  assistants,  engineer,  and  janitor  of  City 
Hall,  Superintendent  of  Faneuil  Hall,  and  alterations 
of  buildings  not  otherwise  provided  for.  During  the 
year  1880  the  expenses  of  this  department  were 


56 


MAYOR’S  ADDRESS. 


$83,783.30.  The  department  has  also  expended  in 
building  and  repairing  school-houses,  $153,754.82. 
Two  new  school-houses  are  in  process  of  construc- 
tion, — one  at  Egleston  square,  at  a cost  of  $45,000 ; 
the  other  at  Seventh  street.  South  Boston,  for 
$50,000;  also  an  addition  to  the  Prince  School,  to 
cost  $25,000.  The  new  Latin  and  High  School  has 
been  completed,  at  a cost  for  land,  building,  and  fur- 
niture, of  about  $748,000.  Two  new  Primary 
Schools,  of  wood,  are  nearly  ready  for  occupation,  — 
one  on  Elmo  street,  and  one  near  Ashmont  station. 
They  will  cost  $13,600. 

INSPECTION^  OF  MILK. 

The  law  of  1880,  regulating  the  inspection  and 
sale  of  milk,  has  been,  in  the  judgment  of  the  in- 
spector, most  salutary  in  its  effects.  Considerable 
resistance  was  made,  at  first,  to  its  enforcement;  but 
the  energy  of  the  department  in  prosecuting  offend- 
ers is  compelling  obedience,  and,  as  a consequence, 
the  citizens  are  getting  purer  milk. 


The  number  of  wholesale  dealers  licensed  in  1880  . . 589 

Number  of  retail  dealers  licensed  in  1880  ....  742 

Number  of  i)rosccutions  . . . . . . .11 

Number  of  convictions  .......  6 

Number  of  eases  pending  . 


o 


.At  A Y 0 R ’ S ADDRESS. 

57 

Number  of  samples  anab’zed  .... 

21 

License  fees  paid  into  treasuiy  .... 

$665  00 

Fees  paid  into  court  ...... 

$279  00 

The  inspector  thinks  he  should  be  authorized  to 
employ  additional  assistance  during  a part  of  the 
year,  at  least;  and,  as  his  duties  have  been  greatly 
increased  by  the  recent  act  of  the  Legislature,  his 
i*equest  seems  reasonable,  and  I commend  it  to  your 
consideration. 


CITY  HOSPITAL. 

The  great  length  of  these  remarks  does  not  per- 
mit me  to  say  all  about  this  institution  which  I 
desire.  It  is  certainly  one  of  the  most  important 
of  our  municipal  departments,  and  the  benefits  de- 
rived from  it  by  our  citizens  cannot  be  overesti- 
mated. It  is  too  early  to  realize  the  advantages 
of  its  incorporation,  but  there  can  be  no  doubt  that 
they  will  be  found  many  and  great. 

The  number  of  patients  in  the  hospital  at  the  last 


report  was  .......  303 

Treated  during  the  year  — 

Medical  .........  2,444 

Surgical 1,463 

Ophthalmic  ........  88 


Total  . 


4,298 


58 


MAYOR’S  ADDRESS. 


Number  discharged  . . . . . . . 3,608 

Died 401 

Patients  treated  in  the  Out-door  Department  . . 10,309 

Visits  to  the  hospitals  ......  34,010 

Cost  of  maintaining  the  hospital  during  the  year  . $117,588  37 
Paid  by  paying  patients  ......  $8,366 

Cost  of  maintaining  non-paying  patients  . . . $109,222  37 


The  resident  physician  and  superintendent  ear- 
nestly recommend  the  erection  of  a suitable  building 
as  a home  for  nurses,  as  it  is  one  of  the  ”most 
urgent  and  imperative  needs  of  the  hospital.”  His 
report  on  this  subject  should  receive  the  careful 
attention  of  the  committee  who  will  be  appointed  to 
supervise  this  institution.  Other  valuable  sugges- 
tions are  made  by  this  able  officer,  to  which  I would 
also  refer  the  committee,  as  action  in  respect  to 
them  will  greatly  promote  the  efficiency  and  use- 
fulness of  this  noble  charity.  I may  find  occasion 
to  allude  to  them  hereafter  in  a special  communica- 
tion. 

DEPARTMENT  OF  THE  SURVEY  AND  INSPECTION  OF 

nUILDlNCS. 

ddie  work  of  this  department  has  been  greatly 
increased  l)y  the  new  and  elaborate  system  for  its 
management,  devised  by  the  inspector,  and  the 
lai-ge  number  of  buildings  erected  during  the  year 


MAYOR’S  ADDRESS. 


59 


in  consequence  of  the  improved  activity  in  all 
kinds  of  business.  Under  this  system  we  have  a 
detailed  record  of  the  condition  of  every  store 
and  dwelling  and  public  edifice,  so  that  it  can  be 
readily  ascertained  whether  there  has  been  proper 
compliance  with  our  building  laws.  Great  care 
has  been  shown  in  supervising  the  work  of  con- 
struction so  as  to  secure  the  safety  which  these 
laws  were  designed  to  accomplish.  The  vigilance 
and  industry  of  the  officers  of  this  department 
cannot  l)e  fully  appreciated  unless  the  record  is 
examined. 

During  the  year  permits  were  issued  for  brick,  stone  and 


iron  buildings  ........  220 

Wooden  and  frame  buildings  . . . . . 465 

Additions,  alterations,  and  repairs  ....  2,084 

Steam  engines  and  boilers  ......  254 

Notices  filed  to  set  furnaces  .....  383 


3,406 

Estimated  cost  of  brick,  stone  and  iron  buildings 

erected  during  the  year  . . . . . $2,300,000 


Estimated  cost  of  wooden  and  frame  buildings  . $750,000 

Estimated  cost  of  additions,  alterations,  and  re- 
pairs   $1,500,000 

Estimated  cost  of  setting  steam  engines,  boilers, 

etc $147,788 

Estimated  cost  of  setting  furnaces  . . . $58,837 

Estimated  cost  of  buildings  in  process  of  erection,  $3,000,000 


60 


MAYOR’S  ADDRESS. 


The  department  discovered  — 


Unsafe  buildings  .... 

156 

Unsafe  heating  apparatus  . 

88 

Dangerous  chimneys  .... 

249 

Violations  of  the  building  laws 

502 

Imperfect  fire-escapes 

126 

Defective  flues  ..... 

26 

The  inspector  suggests  many  important  changes 
in  the  laws  touching  the  survey  and  inspection 
of  buildings  which  should  be  carefully  considered, 
and  I invite  your  attention  to  the  subject,  as  I 
think  the  safety  of  the  city  would  be  greatly 
promoted  by  their  adoption. 


^NOMENCLATURE  OF  STREETS. 

An  order  changing  the  names  of  such  streets  as 
have  now  the  same  name  has  been  referred  to  you. 
It  is  important,  to  prevent  mistake  and  confusion, 
to  avoid  all  duplication  in  this  respect.  In  selecting 
new  names  for  some  of  our  streets  I would  recom- 
mend to  yon  the  propriety  of  adopting  those  which 
''  will  commemorate  the  events  and  persons  belong- 
ing to  the  history  of  the  city.”  As  has  been  well 
said,  ” names  of  cities,  towns,  and  streets  should  be 
regarded  as  historic  monuments.”  So  many  of  onr 
citizens  have  been  distinguished  for  great  services 


MAYOR’S  ADDRESS. 


61 


in  the  cause  of  civil  and  religious  liberty,  science, 
literature,  philanthropy,  and  business  enterprise,  that 
we  should  have  memorials  of  them  for  the  instruction 
and  inspiration  of  succeeding  generations.  These 
views  have  been  largely  endorsed  by  many  of  onr 
most  intelligent  citizens,  and  I trust  they  will  be  duly 
considered  by  you  in  our  action  in  the  premises. 

I intended  to  speak  to  you  touching  other  munici- 
pal departments,  especially  the  Bureau  of  Weights 
and  Measures,  the  East  Boston  Ferries,  and  Regis- 
tration of  Voters.  The  officers  in  charge  of  these 
departments  have  given  me  most  elaborate  and 
interesting  reports  in  respect  to  the  work  done 
therein,  and  made  many  valuable  suggestions  touch- 
ing their  management.  The  length  of  my  remarks 
compels  me  to  defer  reference  to  them  to  another 
time. 

I have  gone  more  into  details  in  this  address  than 
has  been  usual  with  my  predecessors  in  office,  not  so 
much  to  inform  you,  as  the  citizens,  who  are  con- 
stantly soliciting  information  in  respect  to  civic 
affairs,  and  the  business  of  the  different  municipal 
departments. 

The  year  that  has  just  passed  was  distinguished 
as  the  250th  anniversary  of  the  settlement  of  Boston. 
It  was  appropriately  celebrated.  As  a part  of  the 
celebration,  the  statue  of  John  Winthrop,  the 


62 


MAYOR’S  ADDRESS. 


founder  of  the  city,  and  the  prominent  representative 
of  the  first  era  of  onr  history,  was  erected  in  Scollay 
square;  that  of  Samuel  Adams,  the  fearless  tribune, 
and  the  prominent  representative  of  the  second  era, 
was  erected  in  Adams  square,  — to  commemorate  not 
only  the  impoi*tant  events  in  which  they  are  principal 
actors,  but  to  keep  constantly  before  our  citizens 
those  great  principles  — religious  and  political  — to 
which  their  lives  were  consecrated,  that  there  may 
be  no  abatement  of  patriotism  and  public  spirit  in 
Boston. 

Our  natal  day  was  honored  by  the  presence  of  a 
vast  concourse  of  visitors.  Among  these  were  dis- 
tinguished officials  and  eminent  citizens  from  all 
parts  of  the  country.  All  seemed  deeply  impressed 
by  the  evidence,  everywhere  apparent,  of  our  mu- 
nicipal prosperity  and  glory.  It  was  generally  con- 
ceded that  in  whatever  makes  a community  respect- 
able, — in  regal'd  for  law,  in  the  maintenance  of  the 
public  faith,  in  the  appreciation  of  the  things  that 
are  decent,  in  moi*al  and  religions  tone,  in  charitable 
offices,  in  general  intelligence,  in  pidilic  spirit,  and 
in  good  citizenship,  — no  municipality  could  claim 
jirecedence  of  our  beloved  Boston-. 

Such  a])])reciatiou  was  most  gratifying  to  our  citi- 
zens, and  we  may  indulge  the  confident  belief  that 
while  we  maintain  the  civic  virtues,  and  keep  our 


MAYOR’S  ADDRESS. 


63 


municipal  reputation  unstained,  the  peace,  prosperity, 
happiness,  and  honor,  now  enjoyed  by  us,  will  be 
continued  to  succeeding  generations  in  the  centuries 
of  the  future. 


APPENDIX. 


APPENDIX 


Gross  Funded  Debt,  Dec.  31,  1880. 


Due. 

City  Debt. 

1874 

$1,000  00 

1877 

7,000  00 

1880 

8,000  00 

1881 

202,000  00 

1882 

908,500  00 

1883 

982,000  00 

1884 

1,115,000  00 

1885 

403,000  00 

1886 

1,118,000  00 

1887 

1,053,090  00 

1888 

1,602,000  00 

1889 

1,173,000  00 

1890 

1,117,000  00 

1891 

1,912,000  00 

1892 

1,464,000  00 

1893 

6,322,603  73 

1894 

2,723,500  00 

1895 

222,000  00 

1897 

275,000  00 

1898 

100,000  00 

1899 

4,325,872  89 

1 

Cochituate  Water 
Debt. 


$500,000  00 

990.000  00 

250.000  00 


Mystic  Water 
Debt. 


$26,000  00 
100,000  00 
202,000  00 


1,000  00 
225,000  00 
50,000  00 
3,000  00 


100,000  00 

190.000  00 

109.000  00 
45,000  00 

102.000  00 


Total  outstanding. 

$1,000  00 

7.000  00 

8.000  00 

228,000  00 

1.008.500  00 

1.184.000  00 

1.115.000  00 

404.000  00 

1.343.000  00 

1.103.000  00 

1.605.000  00 

1.173.000  00 

1.217.000  00 

2.102.000  00 

1.573.000  00 
6,367,603  73 

2.825.500  00 

222.000  00 

775,000  00 

1.090.000  00 
4,575,872  89 


68 


APPENDIX. 


Gross  Funded  Debt  . — Continued. 


Due. 

City  Debt. 

Cochituate  Water 
Debt. 

Mystic  Water 
Debt. 

Total  outstanding. 

1900 

$1,285,000  00 

$1,285,000  00 
1,643,000  00 
2,047,273  98 

905.000  00 

46.000  00 
1,357,700  00 
2,647,300  00 

15.000  00 

950.000  00 

280.000  00 

1901 

$1,643,000  00 
2,047,273  98 

905.000  00 

46.000  00 
1,357,700  00 
2,647,300  00 

15.000  00 

950.000  00 

280.000  00 

1902 

1903  

1904  

1905 

1906 

1907 

1908 

1910 

$28,319,476  62 

$11,631,273  98 

$1,153,000  00 

$41,103,750  60 

Debt  Paid  and  Issued  in  1880. 

Debt  paid  during  the  year  ending  December  31,  1880  : — 


City  6 per  cent.  . 

. $2,807,500  00 

5 “ ... 

712,800  00 

4J  “ ... 

15,000  00 

4 “ ... 

29,000  00 

5 “ Sterling 

59,740  87 

West  Roxbury  7 per  cent.  . 

30,000  00 

“ GJ  “ ■ 

10,000  00 

Dorchester  7 per  cent. 

53,500  00 

Roxbury  5 per  cent.  . 

107,000  00 

No  int. 

150  00 

Brighton  7 per  cent.  . 

4,000  00 

“ 6 “ . . 

3,140  60 

$3,831,831  47 

Cochituate  Water  6 per  cent. 

750,000  00 

$4,581,831  47 


APPENDIX. 


69 


Debt  issued  during  the  }"ear  ending  Dec.  31 , 1880  : — 


Cit}'  6 per  cent.  . 

“ 5 “ 

u 4 u 

Cochituate  Water  4 per  cent. 
Decrease  in  1880 


$1,000  00 

45,000  00 

2,375,000  00 

$2,421,000  00 

280,000  00 

$2,701,000  00 

. $1,880,831  47 


Of  the  amount  paid  ($4,581,831.47)  $198,000  was  paid  before 
maturity. 

Debt  paid  before  maturity,  b}^  Revenue  from  Betterments,  Land 
Bonds,  etc.,  received  during  the  }’'ear  : — 


Due  in  1883 

$22,000  00 

1887 

15,000  00 

1888 

60,000  00 

1889 

29,000  00 

1891 

60,000  00 

1892 

3,000  00 

1893 

3,000  00 

1895 

6,000  00 

$198,000  00 

Sinking-Funds,  Dec.  31,  1880. 

Old  Sinking-Fund 

. 

$4,891,531  01 

Consolidated  Street  Improvement  . . . 1,316,186  25 

Burnt  District 

1,752,423  31 

Twenty-year 

3,306,497  82 

Ten-year 

396,305  74 

Public  Park 

198,839  95 

Cochituate  Water 

1,748,974  07 

Mystic  Water 

326,3?i4  41 

$13,938,402  07 

70 


APPENDIX. 


Outstanding  Debt,  to  be  redeemed  by  each  Sinking  Fund  : — 


Loans  authorized,  but  not  negotiated  or  issued,  Dec.  31, 1880  : — 
Improved  Sewerage,  Order  of  Aug.  9,  1877  . $1,020,000  00 


Hon.  Frederick  O.  Prince,  Mayor:  — 

Dear  Sir,  — In  response  to  3'Our  request  for  statistics  from  the 
Paving  Department  for  the  year  1880,  I have  the  honor  to  submit 
the  following  report : — 

The  amount  expended  under  the  direction  of  the  Paving  Depart- 
ment, from  Jan.  1 to  Dec.  31,  1880,  was  as  follows,  viz.  : — 

For  new  paving,  grading,  macadamizing,  gravelling,  furnishing 
and  setting  edgestones,  including  cost  of  labor  and  materials,  — 


Old  . 


$6,012,500  00 
3,293,872  89 
5,702,103  73 
10,136,000  00 

2.725.000  00 
450,000  00 

11,631,273  98 

1.153.000  00 


Consolidated  Street  Improvement 

Burnt  District 

Twenty-year 

Ten-year  .... 
Public  Park 
Cochituate  Water 
Mystic  Water 


$41,103,750  60 


Office  of  the  Supt.  of  Streets, 

Boston,  Dec.  30,  1880. 


Charlestown  . 


vSouth  Boston  . 
East  Boston  . 
Dorchester 
West  Roxbury 
Brighton 


City  proper 
Roxbury 


$229,267  09 
60,166  91 
41,319  44 
36,331  78 
76,937  92 
35,528  26 
55,801  38 
36,547  90 


$571,900  68 


APPENDIX. 


71 


For  repairs  and  maintenance  of  streets  and  high- 
wa}’s,  — 


Cit}’  proper 
Roxbuiy 
South  Boston  . 
East  Boston  . 
Dorchester 
West  Roxbuiy 
Brighton 
Charlestown  . 


. $115,456 

34,320 
28,647 
14,710 
25,991 
53,064 
18,349 
31,306 


25 

29 

57 

51 

93 

47 

38 

95 

— $311,847  35 


For  bridges,  culverts,  retaining-walls,  fences  and 
plank  walks,  — 


Cit}’  proper 
Roxbury 
South  Boston 
East  Boston 
Dorchester 
West  Roxbury 
Brighton 
Charlestown 


$31,251  04 
2,350  89 
1,612  39 
250  81 
4,219  87 
2,482  52 
5,202  80 
341  65 


For  care  of  streets  and  roads  in  winter,  levelling  and 
removing  snow,  — 


Cit}"  proper 
Roxbury 
South  Boston 
East  Boston 
Dorchester 
West  Roxbur\ 
Brighton 
Charlestown 


. $14,052  89 

2,785  06 
2,098  26 
1,253  68 
1,825  92 
2,360  99 
1,416  60 
1,959  88 


27,753  28 


72 


APPENDIX. 


For  tools,  carts,  horses,  harnesses,  repairs  on  steam 
engines,  stone  crnshers  and  rollers,  — 


Cit}^  proper  "j 
South  Boston  > 
East  Boston  ; 
Roxbiiiy 
Dorchester 
West  Roxbur}^ 
Brighton 
Charlestown  . 


$11,751  93 

3,761  23 
8,217  35 
4,560  17 
2,016  12 
2,326  69 

$32,633  49 


For  grade  damages,  — 

Roxbniy 
South  Boston  . 
Dorchester 


$4,162  00 
1,222  00 
1,740  73 

7,124  73 


P^or  street  signs  and  numbering  streets 

I"or  stationeiy  and  advertising 

For  salaries  of  superintendent  and  clerks 

For  rent  of  stone  yard 

For  incidentals  .... 


1,222  61 
2,334  71 
8,715  50 
750  00 
3,009  69 


$1,014,904  01 


Of  the  above  amount  ($1,014,904  01)  there  was  charged  to  the 
appropriation  for  — 


Paving,  etc.  . 
Commercial  street 
4'remont  street 
Back  Ba}'  streets 
Columbia  street 


. $968,139  62 
12,157  22 
22,631  91 
11,634  31 
340  95 


$1,024,904  01 


APPENDIX. 


73 


Of  important  work  done  I will  mention  the  following : — 

Commercial  street  was  graded  to  its  full  width,  as  widened  b}' 
the  Board  of  Street  Commissioners,  from  Eastern  avenue  to 
Charles-river  avenue  ; the  curbstones  set  and  sidewalks  paved. 

Tremokt  street  was  paved  with  small  granite  blocks,  from  Dart- 
mouth street  to  Lenox  street,  3,000  feet  in  length. 

Neavbury  street  graded,  curbed,  guttered,  and  macadamized, 
from  Exeter  to  Ilereford  street. 

Beacon  street  widened,  curbed,  and  macadamized,  from  Hereford 
street  to  Brighton  avenue  ; the  sea-wall  on  the  river  side  com- 
pleted, and  the  abutments  for  the  new  bridge  over  the  sluice- 
wa}'s  commenced  and  in  process  of  construction. 

Brighton  avenue  macadamized  its  entire  length  (14,000  f.),  from 
Beacon  street  to  Cambridge  street,  Brighton. 

Western  avenue  (Brighton)  widened  to  100  feet  in  width,  3,500 
feet  in  length,  graded,  macadamized,  and  fenced,  from  the  Cam- 
bridge line  to  N.  Harvard  street. 

Blue  Hill  avenue  (Roxbuiy),  from  AYarren  street  to  Columbia 
street,  widened,  curbed,  and  macadamized. 

Crawford  street  (Roxbury),  from  AVarren  street  to  AA^alnut  ave- 
nue, graded,  and  partW  macadamized. 

Columbia  STREET  (Dorchester),  from  AVashington  street  to  Blue 
Hill  avenue,  widened,  graded,  curbed,  and  macadamized. 

New  Seaver  street,  graded,  curbed,  and  macadamized. 

Adams  street,  from  Pierce  avenue  to  Minot  street,  wddened,  graded, 
curbed,  and  macadamized. 

River  street  (Dorchester),  portion  2,000  feet  in  length,  widened, 
graded,  curbed,  and  macadamized.  Also 

Mather,  North  avenue.  King,  AVare,  Dix,  De  AVolf,  and  Trull 
STREETS  (Dorchester) , curbed  and  macadamized. 

Hyde  Park  avenue,  extension  (AA'est  Roxbuiy),  graded  and  mac- 
adamized. 

Pond  street,  underdrained  and  macadamized. 

Union  avenue.  Porter  and  Jess  streets,  graded,  curbed,  and 
macadamized. 

Albano  street,  Birch  street,  and  Anawan  avenue,  graded  and 
gravelled. 


74 


A P r E N D I X . 


The  following  streets  were  paved  with  small  granite  blocks  : — 

IVIarshall  street. 

Mercantile  street,  extension. 

Tremont  street,  Dartmouth  to  Lenox  (mentioned  above) . 
Tremont  street,  Lagrange  to  Eliot. 

Clinton  street.  Mercantile  street  to  Atlantic  avenue. 

Endicott  street,  Hanover  to  Cooper. 

Avery  street. 

Tamworth  street. 

Lincoln  street,  Essex  to  Leach. 

A STREET,  N.Y.  & N.E.  ILR.  to  Congress  street. 

West  Fourth  street,  F to  Dorchester. 

East  Fourth  street,  Dorchester  to  Atlantic. 

East  Fourth  street,  L to  N. 

West  Sixth  street,  C to  D. 

Palmer  street,  Albany  to  Harrison  avenue. 

Howard  street. 

Sumner  street.  North  Ferry  to  Eastern  R.R. 

Maverick  square. 

Main  street  (Charlestown),  Auburn  to  Cambridge. 

Chelsea  street,  Foss  to  Prospect. 


The  number  of  lineal  feet  of  new  edgestones  furnished  and  set 
was  as  follow'S  : — 


C'ity  Proper 
Roxbury  . 
South  Poston 
Fast  Boston 
West  Roxbuiy 
I )orchcster 
Brigliton 
Charlestown 


7,85G  feet 
14,330  “ 
7,033  “ 
3,182  “ 
4,011  “ 
24,870  “ 
2,065  “ 
1,307  “ 


Total  ..... 
= miles,  against  OjVtt  niiles  set  in  1870. 


65,644  feet. 


A r P E N ])  I X . 


i A 

The  number  of  superficial  yards  of  new  blockstone  pavement  laid 
was  113,572,  against  72,872  in  1879. 

The  number  of  superficial  yards  of  new  brick  sidewalks  laid  was 
25,227,  against  12,868  in  1879. 

Respectfully  submitted, 

CHARLES  HARRIS, 

Superintendent  of  Streets. 


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